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Foreword

The Swedish International Development Cooperation Agency, Sida,has been supporting various activities within the water and sanitationsector in Bolivia since 1989. The Swedish support has beenchannelled through UNICEF and the UNDP/WB Water andSanitation Programme in the Andean Region, UNDP/WB-AN.

The Review was carried out in order to assess the results andachievements of the Swedish support as well as to makerecommendations on possible continued support to the sector inBolivia. The views presented in the Report are those of the authorsand are not necessarily shared by Sida.

The present Review recommends Sida to continue the support toUNICEF provided that the programme is redirected to alsosystematically integrate sanitation and hygiene training The Reviewalso includes detailed recommendations on ecological sustainablesanitation.

The Review is recommending Sida to continue the support to theUNDP/WB-AN. The Reviewrecommends the UNDP/WB-AN toalways apply a consensus building strategy and systematicallyinform other actors in the sector about its existence and objectives. Itis further stressed that various donors should be involved in this typeof network. Finally, the Review gives recommendations on a draftproject proposal for improved water and sanitation services inmarginal urban areas.

The Review provides a good background for further discussionswithin Sida on possible future support to the water and sanitationsectorin Bolivia. We alsohopethattheReportwill be usefulfor theactorsin thesectorin Bolivia aswell asfor otherdonors. The Reportwill be available in the Spanish language.

Stockholmin Dec er, 1996

Berj~~oanssonProgrammeOfficer, Departmentfor Natural Resources and theEnvironment, Sida

Final Report

I •_~•-~

December1996

~bomcin & Winbiad& ¶eck Konsult AB

REVIEW OF SIDA SUPPORTEDACTIVITIES IN THE WATER AND

SANITATION SECTOR IN BOLIVIA

,‘ TTV

Final Report

ACRONYMS AND ABBREVIATIONS

A,O&MANESAPA

CORDEPOCSRPDINASBAFISFNDRPPLPROAPROSABAR

RWSG-ANSEMDESIFSRSPUNASBAUNDP

Administration,Operationand MaintenanceAsociaciónNacional de Empresasde Servicio de AguaPotabley AlcantarilladoLaCorporaciOnRegionalde Desarrollode PotosfCivil ServiceReformProgrammeNational DirectorateofWaterandSanitationFondode InversiOnSocial Ministerio dela PresidenciaFondoNacionalde DesarrolloRegionalPopularParticipationLawCentrode ServiciosIntegradosparael DesarrolloUrbanoBolivian RuralWaterand SanitationProject/ ProyectodeSaneamientoBásicoRuralTheRegionalWaterandSanitationGroup- AndeanRegionServiciosMultiples parael DesarrolloSocialInvestmentFundLa SecretarfaRegionalde Saludde PotosfDepartamentalWaterandSanitationUnitUnitedNationsDevelopmentProgramme

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LIST OF CONTENTS

EXECUTIVE SUMMARY i

1. INTRODUCTION 11.1. Objectiveof thestudy 11.2. Methodology 11.3. Outline ofthereport 3

2. WATERAND SANiTATION IN BOLIVIA 42.1. Rural areas 62.2. Marginalurbanareas 7

3. THE WATSAN COMPONENTIN UNICEF’S PROANDES 93.1. Project objectives and results 9

3.1.1. Fulfilment of objectives 113.1.2. Relevance 11

3.2. Costs 133.3. Administrativecosts 143.4. Systemsfor costcalculationandccstrecovery 153.5. Technologyusedfor watersystems 183.6. Sanitation 19

3.6.1. Findingsfrom thefield vtsits 193.6.2. Analysis 203.6.3.ConclusionsandtechnicaLrecommendations 22

3.7. Hygieneeducation 233.7.1. Conclusionsand recommendations 25

3.8. Equalitybetweenmenandwomen 273.9. Administration,operationandmaintenanceofinstalledsystems 28

3.9.1. A,O&M of watersystem~ 283.9.2. Sanitationunits and sportandsanitationunits 29

3.10. Sustainability 303.11.Projectmanagement 31

4. THE WATSAN COMPONENTIN THE UNICEFPROANDESPROGRAMME—

RECOMMENDATIONS 324.1. ContinuedSwedishsupport 324.2. Hygienepromotion 334.3. Sanitation 334.4. Equalitybetweenmenandwomen 344.5. Systemsfor calculationof costsandcostrecovery 354.6. Administration,operationandmaintenanceofinstalledsystems 354.7. There-orientationof theprograrnni•e 36

5. THE UNDP-WORLDBANK PROGRAMME 375.1. Programmeresultandrelevance 38

5.1.1.Progressandfulfilment of objectives 395.1.2. Relevance 41

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5.2. Influenceon nationalpoliciesandotherprojectsandinstitutionaldevelopment 41

5.2.1.Nationalpolicy andinstitutionaldevelopment 415.2.2. Influenceon otherprojects 42

5.3. Administrativecosts 425.4. Main conclusionsand recommendations 43

6. Theprojectproposalfor marginalurbanareas 456.1. Descriptionoftheprojectproposal 456.2. Analysisof theprojectproposalandtechnicalrecommendations 466.3. Recommendationsfor Swedishfinancing 48

ANNEX 1. TERMS OFREFERENCE

ANNEX 2. LIST OF PERSONSINTERVIEWED

ANNEX 3. LIST OF WRITFEN SOURCES

ANNEX 4.NON-CONVENTIONAL SANITATION SOLUTIONSOFPOTENTIAL

INTERESTTO UNICEF’S PROANDESPROGRAMME

ANNEX 5. DRAFT OUTLINE OFPROPOSEDWORKSHOPFOR THEDISSEMINATIONOF A NEW SANITATION TECHNOLOGY

ANNEX 6.SUMMARY OF RECOMMENDATIONS

LIST OF TABLES AND FIGURES

Fig. 1 TheBolivian WaterSectorFig. 2 Definition of costrecoverylevelFig. 3 Self-built toiletsFig. 4 Community-builtschooltoiletFig. 5 ComponentsofasanitationsystemFig. 6 Shower/ toilet unit with solarheater(perspective)Fig. 7 Shower/ toilet unit, standardplanFig. 8 Faecal-oraltransmissionroutes

Table 1 Plannedand achievedoutputs(UNICEF)Table2 Estimatesof investmentcostsTable3 Estimationofcostsof A, 0 & MTable4 EstimationofadministrationcostsTable5 RWSG-ANactivities 1991 to 1996Table6 EstimationofRWSG-ANadministrativecosts

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RESUMEN EJECUTIVO

El Asdi ha venidofinanciandoaccionesen el sectordeAguay SaneamientodeBoliviadesde1989cuandoseiniciO el apoyoalProgramaPROANDESde UNICEF. El apoyode SueciaseincrementOal finalesde 1993 al decidirel Asdi financiarIa nuevainiciativadel ProgramaPNUD - BancoMundialde Aguay Saneamiento:La RedAndina.

El PROANDES,el que consistede seis subproyectosdiferentes,trabajaen las areasruralespobresde laSierraboliviana.El subproyectode Aguay Saneamientoharecibidode Asdi US $ 653,600entre1990y 1994,y en 1996US $ 490,000lo quehaceun totalde US $ 1,143,600entre1990 y 1996. Para 1997estáprogramadoun montode US $405,000.El apoyode partedel Asdia la RedAndinaasciendea aproximadamenteUS $670,000por un perfododedos aflos y medio. Los presentesacuerdosentreci Asdi yestosprogramasseterminaránen 1997 y 1996, respectivamente,y hastaahoralosprogramasno hansido evaluados.

Con el propOsito de evaluar los resultadosdel apoyo sueco a! sector de agua ysaneamientoy paralograrun diálogo con UNICEFy PNUD - BancoMundial referentealas poilticas de susrespectivoprogramasde aguay saneamiento,el Asdi comisionOlapresenteevaluaciOn.

El estudiofue Ilevadoacabopor Kristina Boman(encargadade Ia MisiOn) deBoman&PeckKonsultAB, UnoWinblady FernandoCaballeroen septiembrede 1996.Todoslosmiembros del equipo participaron en Ia evaluaciOndel subproyectode Agua ySaneamientodel PROANDES, mientras la evaluaciOndel Programade Agua ySaneamientode PNUD - BancoMundial fue realizadaporKristina Bomany FernandoCaballero.

El informe contienevariasconclusionesy recomendacionesy, debidoa! carácterde Iatarea,muchasde ellastratan asuntostdcnicosenfocadoshaciael mejoramientode losprogramas.Paraqueel ResumenEjecutivosealo máscortoposible,esterelatasobretodo lasconclusionesy recomendacionesgenerales.

UNICEF - PROANDES

Las principalesconclusionesreferentesa! subproyectode Agua y SaneamientodelPROANDESsonlas siguientes:

— El proyectoha resultadomuyexitosoen cuantoala construcciOndesistemasdeagua.Desdesu inicio en 1989 hasta1995, sehan construido511 sistemasde aguapara111,538beneficiarios.El 37% de Ia poblaciOnmetadel PROANDEShasido provistadelaccesoal aguapotable.La construcciOnde sistemasde aguaesrelevantetanto a losobjetivosde desarrollodeSueciacomoalas necesidadesdel grupometa.La tecnologfaempleadaesapropiadaparalas comunidadesy UNICEFha logradodisminuirlos costosde inversiOntantoen el diseñocomo ellaconstrucciónde los sistemas.

— El areametadel PROANDESes el más pobre de Bolivia y casi ningunaotraorganizaciOn,aexcepciOnde Yacupaj,seencuentratrabajandocon aguay saneamientoenIa regiOn. El subproyectode Agua y Saneamientoha logradoatraerfinanciamiento

Final rep9rt

nacionaldelFondode InversiOnSocial (FIS) paralas provinciasdel nortede PotosIy surde Cochabamba,lasquenormalmentehanrecibidopocosfondosdedonantesnacionalese internacionales.

— A pesarde los logrosarribamencionados,el subproyectodeAgua y Saneamientonohaalcanzadosu objetivo general,el “accesomejoradoy ampliadoal aguapotableyserviciosde saneamientorural paralas familias campesinasen suscomunidades”.LarazOnesquetantoel componentede saneamientocomoel de educaciOnenhigienehanvenidoatrasándose.La metaplanificadaparasanitarios(letrinas) familiaresno ha sidoalcanzada,y menosdel 2% de la poblacion meta del PROANDES ha recibidocapacitaciOnsistemáticaeneducaciOnde salude higiene.

— El componentede saneamientoseha concentradoen la dotaciOnde sanitariosy,generalmenteno parecehaberunaeducaciOnsanitariaeficiente,explicandoelporquéycOmousarlasinstalacioneso la higienepersonalen relaciOnala defecaciOn.La impresiOngenerales que donde existeny funcionan razonablementebien los sanitarios,sonutilizados.Nosedetectaunanecesidaddela tecnologIaVIP en el Altiplano yaqueexistenalternativascon un mayorcostoeficiencia.El sanitariode sellohidráulicono esadecuadoen areascon escasezde aguao donde las personasusanmaterialessOlidospara lalimpiezaanal.El potencialvalorhorticulturalo agriculturade las excretashumanas,lasquepodrianusarseventajosamentecomofertili~.antes, no ha sidoaprovechado.

— El programacarecede una estrategiabien definida referentea! desarrollodelcomponentedepromociOnde Ia higieney no existenpromotorescapacitados.

— Las unidadesde saneamiento,esdecirlas duchassolaresy los sanitariosdesellohidráu!ico,no sonsosteniblesdebidoa su tecnologIademasiadocomplicaday sensible,Iafalta de preparaciOnparala administraciOn,operaciOny mantenimientoasfcomola faltade fondoscomunitariosparareparaciones.El diseflo y la technologiade las unidadessolaresdebenserrevisados.

— Los sistemasde aguay saneamientodeUNICEF no soncostososcomparadosalosde otrosproyectosen Bolivia, a lo contrarioparecentenerun costomenor.

— Los costos administrativosde UNICEF Bolivia para el proyectode Agua ySaneamientoseestimanal 12%parael aflo 199~5.Incluyendoel costoquededucela sedede UNICEF en Nueva York, los costosadminstrativossubena 18%. En 1996, elporcentajetornadoporUNICEFenNuevaYork bajO al3%, lo cOal implicaqueel costodeadministraciOndisminuyerespectivamente.

— El proyectoha tratadode promoverla igualdadentrelos sexosy hadesarrolladounaestrategiaparaestefin. Esto debeconsiderarsepositivopero la estrategianecesitasermejordesarrolladay aplicadaconsistentementepor todaslas ONGsqueimplementanlosproyectos.

— No existeun sistemaparael cálculo decostosde inversiOn.La recuperaciOnde costosselogra parcialmentepormedio de la contnbuciOnde las comunidadesen la forma dematerialeslocalesy mano de obra. SegOnun estudiopuntual de costosde inversiOnrealizadoporUNICEF, el promediode la recuperaciOnparasistemasde aguaesdel 36%y parasanitariosdel66%al74%.

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— Se han realizadoactividadesde capacitaciOnen la administraciOn,operaciOnymantenimientode los sistemasde aguaconstruidos,pero solamenteel 60% de lascomunidadesha recibidola capacitaciOncompleta.Además,las polfticasy metodologiasutilizadaspara!a capacitaciOnnecesitanrevisarse.La preparaciOnen la administraciOn,operaciOny mantenimientode lasunidadesde saneamientono hasido suficienteparagarantizarIa sostenibilidad.

— Las propiciasen las quetrabajael PROANDESsonlas máspobresdeBolivia y lasituaciOnde saludde la poblaciOnen generaly de los niñosy nifias enparticular,esmala.Las inversionesen agua,serviciosde saneamientoe higieneson importantesparadisminuirla tasade mortalidadinfanti! y paramejorarlas condicionesde sa!udy de vidade !a poblaciOnde la regiOn.UNICEFha logradodesarrollarlacapacidadde lasONGsparaimplementarproyectosde aguaenel area.La MisiOn opinaqueeste“sistemadeaprovisionamiento”podrfaadaptarseparaimpiementarproyectosde agua,saneamientoehigiene,esdecirparaproyectosintegralesenfocadoshaciael mejoramientodela sa!uddeIa poblaciOnruraldeestasprovincias.Serecomienda,porlo tanto,queel Asdi continOefinanciandoel subproyectode Aguay Saneamientodespuésdel 1997, siempreque:

— UNICEF redinjala asistenciade acuerdoalas recomendacionespresentadasenel presenteinforme,

— UNICEF continue tratandode atraerfondosdePROSABAR y FIS paralasONGsy las municipalidades,— estoesnecesarioparadisminuirla dependenciade los fondosdel Asdi,

— UNICEFcontinOey fortalezcasu dialogocon DINASBA paradar aconocerlasexperienciasde UNICEFy a! mismotiempoestaral dfacon los desarrollosdelsector.

La recomendaciOnmásimportantereferentee! subproyectodeAguay Saneamientoesqueel proyectoseareorientadode un proyectode “provision de agua”a un proyectointegradodeagua,saneamientoe higiene.Las recomendacionesdetalladassepresentanen el capftu!o4.

Porotro ladoserecomiendaqueel desarrollodel subproyectode Aguay Saneamientoseamonitoreadoanualmenteporel Asdi y que el resultadosediscutaen las revisionesanualesdel PROANDES.Ademäs,despuésde 18 mesesdeberealizarseun pequefloestudiosobrela reorientaciOndelsubproyecto.EspecialistasdelsectordeberlanapoyaralAsdi enci seguimientoy dialogo de po!fticascon UNICEF.

EL PROGRAMA DE PNUD-BANCO MUNDIAL

El ProgramadeAgua y SaneamientodePNUD - BancoMundial en Ia regiOnandina(RWSG-AN)parecehabertenido dosfases:del 1991 al 1995y del 1996paraadelante.Antes de 1996, RWSG-ANconcentrabasus esfuerzosa tres proyectosdiferentes:Yacupaj, PROSABAR y FASBASE. El Programavenfa trabajandoen Bolivia,principalmente,y enpequefiaescalaenelEcuador,pero no tenfaproyectosen el Peruysolamenteunoal nivel regional.

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En 1996, RWSG-AN incrementOsus activiJadestanto en cadapals como a nivelregional.El Perufueincluido porprimeravezy seiniciarontentativasde coordinarlasexperienciasentrelos palses.

RWSG-AN, pormediode su trabajocon Yacupajy PROSABAR,ha logradoun impactomuy importanteen el sectorde aguay saneamientoen elarearural de Bolivia. La MisiOnopinaqueel Programa,atravésde la implementaciOny documentaciOnde la experienciade Yacupajha influido positivamenteen la creaciOnde PROSABAR. Debido a lamagnituddePROSABARy a su conexiOncon la agenciacoordinadoradel sectordeAgua y Saneamiento,DINASBA, ci trabajodc RWSG-ANinfluirá en el sectoren sutotalidad.

En Bolivia, el proyectohalogradolos objetivosexpresadosen lacartade acuerdocon alAsdi y con los objetivosdel Programay el trahajoha sido relevantetantoparael sectorcomoparalos beneficiarios.

A pesarde los logrosen Bolivia, el RWSG-ANno ha logradolos objetivosexpresadosen Ia cartade acuerdocon Sueciade maneracompleta.Antesde 1996,el intercambiodeexperienciasentrelas comunidadesfue casinulD y ningunared regionalexistla.Además,paraesteperfodoesdiflci! detectarlos objetivosa largo plazoy las estrateglasparaciestablecimientode la cooperaciOnregional.

Los costosde administraciOnasciendena! 27% del costo total del Programa.Esterepresentaun costoadministrativobastantealto y refleja la fasecorrientedeldesarrollodel Programa,esdecir“el nuevocomienzo”.Si la propuestaparael proyectodeaguaysaneamientoen areasurbano-marginaleses aprobada,los costosde administraciOnbajarfana! 13%del presupuestototal, !o querepresentaun nivel másaceptable.

Desde1996, RWSG-ANcuentacon unaestrategiaespecificaquedefinecOmo trabajarcon los palsesincluidos en el acuerdocon Sueciay cOmo lograr sus objetivos,inc!uyendoun intercambiode experienciasy coordinaciOnentrelos diferentespalsesandinos.Además,el RWSG-AN tieneel polencial parainfluir positivamenteen eldesarrollode los sectoresde aguay saneamientaen la region andina.

El ProgramadeAguay Saneamientode PNU[) - BancoMundial gozadeunaposiciOnOnicadentrodel sectorde aguay saneamiento,lo quelepermitiracontribuir a la soluciOnde varios de los problemascomunesdel sector. Sin embargo,debido al carácterdescentralizadodel Programa,el éxito de un programaregionaldependeráde Lacapacidadde su personalpropia.

La experienciadela regiOn andinamuestraqueelAsdi necesitarealizarUn seguimientodelos resultadosdel Programade Aguay SaneamientodePNUD - BancoMundial de unamaneramáscontinuay atentaque anteriormente,y que las decisionesreferentesa!financiamientodeberlanbasarseen un documentoquedescribeclaramentelos objetivos,las actividadesplanificadasy el presupuesto.El acuerdoentreel Asdi y elBancoMundia!espocodefinidoy no correspondealos requerimientosnormalesdelAsdi.

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Las recomendacionesprincipalessonque:

— Sueciacontinuefinanciandoel RWSG-ANperoqueseincluyanlas contribucionesdedonantesadicionales.Paracualquierred esimportantecontarcon variosdonantes,yaqueestoaportaal desarrollode unaconcertaciOnen el sectory, de estamanera,contnbuyea!alcancede los objetivos delPrograma,

— la decisiOnde continuarel financiamientosuecosebaseenun documentoquedescribaclaramentelos objetivos,las estrategias,lasactividadesplanificadasy el presupuestodelRSWG-AN,

— el Asdi monitoréelos resuliadosdelRWSG-AN,

— el RSWG-AN informelas otrasorganizacionesdel sectorsobresu existenciay sumisiOn,

— ci RWSG-ANap!iquesiempreunaestrategiaquefortalezcala concertaciOn,esdecirtratede incluir ci mayornOmeroposiblede organizacionesen sus diferentesactividades.Con ci fin de alcanzarel objetivo del Programade“un procesode aprendizajedentrodelsector”,todaslas actividadesdeberfanbasarseen experienciaspreviasde diferentestiposde organizacionesy en unacomunicaciOneficientecon los actoresdel sectorde aguaysaneamiento.EsteprocesodeberIacomenzara! inicio de cualquierproyecto.

LA PROPUESTA PARA AREAS URBANO- MARGINALES

En mayo de 1996, DINASBA y RWSG-ANpresentaronuna propuestade proyectopreliminaral Asdi. Estapropuestase refiere a un proyectopiloto paraareasurbano-marginalescuyo objetivoalargop!azoes“mejorarlas condicionesde vida de los pobresdel areaurbanapor medio del accesosostenibley mejoradoa serviciosde aguaysaneamiento”.La situaciOnesperadaa! final de esteproyectoes:

— haberformuiadopolfticasdel sectory fortalecidolas instituciones,esdecirlasagenciasnacionalesy las municipalidades,

— haber probado y desarro!!adomodelos institucionales,mecanismosdefinanciamientoy opcionestecnoh5gicasparalas areasurbanasmarginales,

— haber dotado a la poblaciOn de bajos ingresosde las areas urbanasmarginalizadascon serviciosde aguay saneamiento,

— haberdocumentadoy divulgadolas experiencias.

LaestrategiasubyacentedeRWSG-ANparaesteproyectoesla de reproducirci procesodeYacupaj- PROSABARen las areasurbano-marginales.El Programahadiscutidoyalas posibilidadesde financiamientode un proyectode aguay saneamientograndeparacomunidadesurbano-marginalesconci BancoMundial y, de acuerdoala informaciOnobtenidadel Programa,el Bancotieneinterésenfinanciarun granproyectode inversiOnutilizandolas experienciasdel proyectopiloto

La conclusiOnprincipalesqueel proyecto,si es implementadocorrectamente,serámuyrelevantey podrfaserci puntode partidaparala soluciOnde los problemasdeaguaysaneamientode las areasurbano-marginales.La MisiOn consideraestouna inversiOn

V

Final rep2rt

estratdgicaparaSuecia,una inversiOnpequefiacon la posibi!idad de grandesefectoslateraiespositivos.

Serecomiendaqueci Asdi considereel financiamientodel proyectoperoqueparticipentambiénotros donantes.La participaciOnde dcnantesadiciona!esesimportantesya quefacilita la aceptaciOny la implementaciOnde las normasy metodologiasresultantesdelproyecto.

SecciOn 6.2. contiene recomendacionessobre el contenido de la propuesta.Larecomendacionessobrela preparaciOnde un apoyo de Asdi se presentaen lacontinuaciOn.

1. RWSG-AN y DINASBA preparanuna propuestadetalladaconsiderandolasrecomendacionesen secciOn6.2. Si otro clonantefinanciarapartedel proyecto,semodificarfaci presupuesto.

2. Asdi evahialapropuestaincluyendoun analisisde las actividades,el presupuestoy iacapacidadinstitucionalactualde DINASBA y RWSG-AN.

3. Asdi daseguimientoanuala los resu!tadosdel proyecto.Se recomiendaunaevaluaciOnmedio termino.La participaciOnde un especialistadel sectorde aguay saneamientoesrecomendable.

4. Parael fortalecimientoinstitucionalde DINASBA, Asdi puedeconsiderarde dirigirpartede sus fondosparael “Civil ServiceReformProgramme”puestosprofesionalesenDINASBA. Naturalmentese lo harasiemprey cuandoqueAsdi lo consideravita! ciapoyodelDINASBA parael desarroiiodel sector.

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EXECUTIVE SUMMARY

Sidahasfinancedactivities in thewaterandsanitationsectorin Bolivia since1989, whena supportto theUNICEF PROANDESprogrammewasinitiated. The Swedishsupportwas increasedat theend of 1993 when Sidadecidedto fund theUNDP-World BankWaterandSanitationProgramme’snewinitiative: theAndeanNetwork.

PROANDESwhich consistsof six different subprojectsworks in the poor ruralhighlandsof Bolivia. The WatsansubprojecthasreceivedUS $ 1,143,600from Sidabetween1990 and 1996. Another US $ 405,000is programmedfor 1997. The Sidasupportto the AndeanNetwork is approximatelyUS $ 670,000which will be usedduring two and ahalf years.The currentagreementsbetweenSidaand theprogrammeswill beend in 1997,and up to now, theprogrammeshavenot beenevaluated.

In orderto assesstheresultsof theSwedishsupportto thesectorandto achievea policydialoguewith UNICEFand theUNDP-WorldBankWaterand SanitationProgramme,this reviewwascommissionedby Sida.

Thestudy wasconductedby Kristina Boman(teamleader)from Boman& PeckKonsu!tAB, Uno Winbiad and FernandoCaballeroduring September1996. All teammembersparticipatedin the assessmentof the Watsansub-projectof PROANDES,while theevaluationof the UNDP-World BankWater and SanitationProgrammewasdonebyKristinaBomanand FernandoCaballero.

The reportcontainsseveralconclusionsandrecommendationsanddueto thecharacterofthe task,manyof themdealwith technicalissuesi.e. how to improvethe programmes.Thegenera!conclusionsandrecommendationsarepresentedbelow.

UNICEF — PROANDES

— Theprojecthasbeenvery successfulin theconstructionof water systems.Sinceitsinitiation in 1995,it hasconstructed511 watersystemsfor 111,538beneficiaries,whichrepresent37% of thePROANDEStargetpopulation.Theconstructionof watersystemsare relevantconsideringboth theSwedishdevelopmentobjectivesand theneedsof thetarget group. The technologyof watersystemsare appropriatefor the villages andUNICEF hassucceededto cuttheinvestmentcosts.

— ThePROANDEStargetareais thepoorestin Bolivia andalmostno otherorganisationis working with waterandsanitationin thearea.TheWatsansubprojecthassucceededtoattractnationalfinancingfrom the Social InvestmentFund(SIP)for provincesin northernPotosl and southernCochabamba.Theseareashave receivedlittle financing fromdifferent nationaldonors.

— In spiteof theachievementsmentionedabove,theWatsansubprojecthasnot achievedits overall objectivei.e. “improved and extendedaccessto potablewaterand ruralsanitationservicesfor farmers’ families in their communities”.Thereasonis thatbothsanitationand hygieneeducationhavelaggedbehind.The plannedoutput for familytoilets hasnot beenachieved,andlessthan2% ofthePROANDEStargetpopulationhave

Final report

beengiven accessto toilets. Lessthan 1% of the targetpopulationhavereceivedsystematictraining in healthandhygiene.

— The sanitationcomponenthasbeenconcentratedon the provision of toilets, andgenerally thereseemsto be no effectivehygieneeducationexplaininghow to usethetoilets and persona!hygienein relation to derecation.The generalimpressionis thatwheretoilets (of whatevertype)areavailableandfunctioningreasonablywell theyarealso used.Thereis no needfor theVIP technologyin thedry areasof theAltiplano asmorecost-effectivealternativesareavailable.The watersealtoilet is not suitablewherewater is in short supply and wherepeopleusesolid material for analcleaning.Thepotentialfertiliser valueofthehumanexcretahasnotbeenutilised by theProject.

— The Projectlacksa well definedstrategyon how to developthe hygienepromotioncomponentandthereareno trainedpromoters.

— The sanitationunits i.e. the solar heatedshowersand pour flush toilets are notsustainabledueto a too complicatedand sensitivetechnology,lackof preparationforadministration,operationandmaintenance(A,O&M) and lackof communityfundsforrepairs.

— UNICEF watersystemsand toilets arenot expensivecomparedto otherprojectsinBohvia,rathertheyappearto havea lowercost.

— Theadministrativecostof UNICEFBolivia for theWatsanproject is estimatedto 12%of thetotal budget.If theUNICEF headquarterscostrecoverycost is includedthefigureincreasesto 18%.

— Theprojecthasdesigneda strategyto improvetheequalitybetweenthesexes.This ispositive, but the strategyneed&to be further developedandconsistentlyappliedby allNGOsimplementingtheprojects.

— There is no systemfor cost calculation,and cost recoveryis achievedthroughcommunities’ contributionsin local material and labour. According to a cost studyconductedby UNICEF, the averagecostreccveryof total investmentcost for watersystemsis 36% andfor toiletsbetween66%to 74%.

— TheProjecthasorganisedtraining in A,O&M of constructedwatersystemsbut only60% of the communitieshavereceivedthe full training. Moreover the policies andmethodologiesfor training needto berevised.Thepreparationfor A,0&M for sanitationunitshasnotbeensufficientto guaranteethesustainabiity.

The provinceswherePROANDESis activearethepoorestin Bolivia andthe healthofthe population in general,and children in particular, is bad. Investmentsin water,sanitationandhygieneareimportantto decreasetheinfant andchild mortality ratesandtoimprove the healthand living conditions of the populationin the area.UNICEF hasdevelopedthe NGOs’ capacityto implementWatsanprojects,and togetherthey havecreatedan efficientsystemto implementwaterprojects.The Missionbelievesthat this“delivery system”couldbeadaptedto implementwater,sanitationandhygieneprojectsi.e. realintegratedprojectsto improvethehealthof the targetpopulation.It is therefore

11

Final report

recommendedthatSidacontinuesto finance theWatsansubprojectafter 1997providingthat:

— UNICEFredirectstheassistanceaccordingto the recommendationsgiven in thisreport,

— UNICEF continuesto try to achievefundsfrom PROSABARand SIF for theNGOsandthemunicipalities.This is necessaryto decreasethedependenceonSidafunds,

— UNICEFcontinuesandstrengthenesits dialoguewith DINASBA. Thepurposeis thatUNICEFsharesits experiencesandsimultaneouslystaysinformedaboutthedevelopmentof thesector.

ThemostimportantrecommendationregardingtheWatsansubproject,is that theprojectis reorientedfrom being a“providerof watersupply” to an integratedwater,hygieneandsanitationproject.

It is also recommendedthat Sida annuallymonitors the developmentof the Watsansubproject,and that the result is discussedat the annualreviews of PROANDES.Moreover,afteroneand a half years,asmall study of thereorientationof theWatsansubprojectshouldbemade.SectorspecialistsshouldsupportSidain themonitoringof,andpolicy dialoguewith UNICEF.

THE UNDP — WORLD BANK PROGRAMME

The UNDP-World Bank Water and SanitationProgrammein the Andeanregion,(RWSG-AN)appearsto havehad two phases:1991 to 1995and1996onwards.Prior to1996, RWSG-ANconcentratedits efforts to threeprojects:Yacupaj,PROSABARandFASBASE. TheGroupwasworking predominatelyin Bolivia and to someextent inEcuador.No activitieswereundertakenin Peruandvery few atthe regionallevel.

In 1996,RWSG-ANincreasedits activitiesboth in eachcountryandattheregionallevel.Peruwasincluded,and efforts to co-ordinateexperiencesbetweenthecountriesweremitiated.

RWSG-AN has,through its work with Yacupaj and PROSABAR,had an importantimpacton therural water andsanitationsectorin Bolivia. TheMissionbelievesthat theGroup through its implementationand documentationof the Yacupaj experienceinfluenced positively in the creation of PROSABAR. Due to the magnitudeofPROSABARandits connectionwith theco-ordinatingagencyof thewaterandsanitationsector,DINASBA, RWSG-ANwork will influencethewholesector.

In Bolivia theprojecthasachievedtheobjectivesexpressedin the letterofagreementwithSidaaswell astheobjectivesoftheProgramme.Theworkhasbeenrelevantboth for thesectorandfor thebeneficiaries.

In spiteof the achievementsin Bolivia, RWSG-ANhas not completelyachievedtheobjectivesexpressedin the letter of agreementwith Sweden.Prior to 1996, therewasalmost no interchangeof experiencebetweenthe countriesand no network wasestablished.Moreover,it is difficult to detectthe long-termobjectivesandstrategiesforhow the regionalco-operationwasgoing to beestablished.

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Final report

Theadministrationcostaccountsfor 27%of the totalProgrammecost.An administrationcost of 27% is quite high and reflects the current phaseof developmentof theProgramme,i.e. “the new start”. If the project proposalfor waterand sanitationinmarginalurbanareasis approved,theadministrationcostwould go downto 13%ofthetotalbudget,which is amoreacceptablelevel.

Since1996,RWSG-ANhasawell defmedstrategyof howto work with all thecountriesincludedin theagreementwith Sida. Thestrategyalsoaddressesthehow to achievetheobjectivesincluding theco-ordinationandinterchangeof experiencebetweendifferentAndeancountries.Moreover,RWSG-ANhasthe potentialto positively influencethedevelopmentof thewatsansectorsin theAndeanregion.

The UNDP-WorldBankWaterand SanitationProgrammehasauniquepositionin thewater andsanitationsector, which givesit the potentialto contributeto thesolving ofseveralof the commonproblemsin watsansectors.However,due the decentralisedcharacterof theProgramme,the successof theProgrammein a particularregionwilldependon theability of its staff.

Theexperiencefrom theAndeanRegionshowsthat Sidaneedsto follow up theresultsofthe UNDP-WorldBankWaterand SanitationProgrammemoreclosely thanpreviouslydone,and that thefunding decisionshouldbe basedon a documentthat clearlydescribestheobjectives,plannedactivitiesandbudget.TheagreementbetweenSida andtheWorldBank is too vagueanddoesnot follow thenormalSidarequirements.

Themain recommendationsarethat:

— Swedenshouldcontinueto financeRWSG-AN but that otherdonorsalso shouldcontribute.For any networkit is importantthat various donorscontributesincethisfacilitates consensusbuilding in the sector and therebythe achievementof theProgramme’sobjectives.

— The decisionto continueSwedishfinancing should be basedon a documentthatclearlydescribesobjectives,strategies,plannedactivitiesandabudgetfor RWSG-AN.

— Sidafollow up theresultsof RWSG-AN.

— RWSG-ANinforms theotherorganisationsin the sectoraboutits existenceand itsobjectives.

— RWSG-ANalwaysappliesa consensusbuildingstrategyi.e. tries to involve asmanyorganisationsaspossiblein its differentactivifies. In orderto achievetheProgramme’sobjectiveof “a learningprocessin thesector”,all activities shouldbe basedon previousexperiencesof differenttypeof organisationsandan efficient communicationwith theactors. This process should start from the beginning of any endeavour.

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Final report

THE DRAFT PROJECT PROPOSAL FOR MARGINAL URBAN AREAS

In May 1996,DINASBA andRWSG-ANsubmittedadraftprojectproposalto Sida.Theproposalregardsapilot projectfor marginalurbanareas.Thelong termobjectiveis to“improve theliving conditionsof urbanpoor throughsustainable,improvedaccesstowaterandsanitationservices”. Theexpectedoutputsof theprojectsare:

— to haveformulatedsectorpoliciesandstrengthenedtheinstitutionsi.e. nationalagenciesandmunicipalities,

— to havetestedanddevelopedinstitutionalarrangements,financing mechanismsandtechnologyoptionsfor themarginalurbanareas,

— to haveprovidedlow incomepopulationliving in marginalizedurbanareaswithwaterandsanitation,

— to havedocumentedanddisseminatedtheexperiences.

Theunderlyingstrategyof RWSG-ANis to copy theYacupaj— PROSABARprocessinmarginalurbanareas.TheGrouphasalreadydiscussedthepossibilitiesfor financingof alargewatsanprojectfor marginalurbancommunitieswith theWorld Bank, andaccordingto the information given by the Group, the Bank is interestedto finance a largeinvestmentprojectutilising theexperiencesof thepilot project

Theoverall conclusionis that theproject,if implementedcorrectly,will be relevantandcan be the starting point to solve the watsanproblemsin marginal urbanareas.TheMission considersit to bea strategicinvestmentfor Sida— a small investmentwith apossibility to largespin-offeffects.

It is recommendedthat Sidashould considerthefinancingof the projectbut that otherdonorsalso participate.The participationof otherdonorsare importantsinceit willfacilitatetheacceptanceandtheimplementationof thenormsandmethodologiesresultingfrom theproject.

Section 6.2. includessome technicalrecommendationsregardingthe contentof theproposal.Here we recommendhow to proceedwith thepreparationof apossibleSidasupport.

1. RWSG-AN and DINASBA should preparea detailedproposalconsideringtherecommendationsgiven in section6.2.. If the first phaseof theproject will be financedby Belgium, theprojectbudgetshouldbe reducedaccordingly.

2. Sidashouldassesstheproposalmakingananalysisoftheactivities,thebudgetandtheprevailinginstitutionalcapacityof DINASBA andRWSG-AN.Sidashouldbe carefultodetectanychangesin thecapacityof theorganisationscompared.

3. Sida should monitor the resultsof theproject annually. A mid-termassessmentisrecommendedandtheparticipationof sectorspecialistscouldbeuseful.

4. To strengthenthecapacityof DINASBA, Sidacouldconsiderto earmarksomeof thefunds of theCivil ServiceReformProgrammefor mediumlevel postsin DINASBA.Naturally,this shouldonly be doneif SidaconsidersthatDINASBA’s activitiesarevitalfor thedevelopmentof thewatsansector.

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Final report

1. INTRODUCTION

Sidahasfinancedactivities in thewaterandsanitationsectorin Bolivia since1989,whena support to theUNICEF PROANDESprogrammewas initiated. PROANDEShassixdifferentsub-projectsof which thewaterandsanitationproject(Watsan)is one.In 1994,Sida undertookan evaluationof the PROANDESprogrammebut Watsanwas notassessedin detail. A secondperiod of co-operationbetweenSida and PROANDESstartedin July 1993andwill end in 1997.

TheSwedishsupportto theBolivian waterandsanitationsectorwasincreasedattheendof 1993 whenSida decidedto supportthe UNDP-WorldBank Water and SanitationProgramme’snew initiative: the Andean Network. The agreementput forthapproximatelyUS 670,000of Swedishassistanceduring atwo and half yearperiod.Upto now Sida hasnot evaluatedtheprogressof theAndeanNetwork.

In orderto assesstheresultsof theSwedishsupportto thesectorandto achieveapolicydialoguewith UNICEF and theUNDP-Wor!dBankWaterand SanitationProgramme,this reviewwascommissionedby Sida.

1.1. Objective of the study

Accordingto thetermsof referencewhich areattachedin annex1, theobjectivesof theconsultancyareto assesstheprogressandachievementsof: theWatsansub-projectof theUNICEF PROANDESprogrammeand the AndeanNetworkwithin theUNDP-Wor!dBank Waterand Sanitationprogrammeincludinga projectproposalfor marginalurbanareas.

Basedon the resultof the assessment,the Mission shouldprovide Sida with threerecommendations.First, it should suggestcorrectivemeasuresto be takenwithin theremaining agreementperiod, and secondly,it should recommendwhetherSwedishfunding should continue beyond the presentagreementperiods. The thirdrecommendationto be givenby theMissionregardsthe preparationof future Swedishsupportto the marginalurbanwaterandsanitationsectorin Bolivia.

1.2. Methodology

Thestudywasconductedby KristinaBoman(teamleader)from Boman& PeckKonsultAB, UnoWinblad from WinbladKonsult AB andFernandoCaballeroduring September1996. A!! teammembersparticipatedin the assessmentof the Watsansub-projectofPROANDES,UNICEF, while the evaluationof the UNDP-World Bank Water andSanitationProgrammewas doneby Kristina BomanandFernandoCaballero.

The work wascharacterisedby a dialoguewith Sida, UNICEF and the UNDP-WorldBank Water and SanitationProgramme.Severaldiscussionswere held with the co-ordinatorandthestaffof Watsanincluding theNGOsthat areimplementingtheprojectsat community level. The Mission also reachedoutside UNICEF and the AndeanNetwork.At one point Mr Winb!ad wasaskedto hold a presentationon sanitationatDINASBA, the organisationthat co-ordinatesand regulatesthe waterand sanitation

I

Final report

sectorin Bolivia. Representativesfrom differentorganisationssuchasSIF, DINASBAandPROSABARparticipatedin themeeting.

Thedatacollectionfor theassessmentof both Watsanand theAndeanNetworkstartedwith the studyingof documentationin Sweden.Thereafter,the Mission interviewedpersonnelat both organisationsin La Paz and at severalother institutions andorganisationsin the waterandsanitationsectorin Bolivia. The objectivewas to getacompletepictureof theactivitiesof thestudyobjectsthroughcomparingtheiropinionswith thoseof thesector.

Datacollection for theanalysisof theAndeanNetworkincludedinterviewswith NGOssuchasCARE and Caritas,governmentinstitutionslike SIF, DINASBA, PROSABARandotherdonorssuchasUNICEFandtheEm~assyof theNetherlands.A completelistof interviewedpersonsareincludedin Annex 1. TheMissionalsovisited villageswheretheYacupajprojecthadbeenactive.

Additional datato analyseWatsanwasgatheredthroughinterviewswith threeNGOsworking in the programmeandthrough field visits to approximately15 villagesin thegeographicalareawherethe programmeis active,i.e. in northernPotosfandsouthernCochabarnba.Thevisits coveredthework of threeNGOsin bothAymaraandQuechuaspeakingcommunities.The field trip meant 7 daysof continuostravel and coveredapproximately20 villagesand 1,400kilometresof dusty roads.

Theprogrammingof villagesto visit duringthefield visit wasdoneby theMission,andthevisits wasconductedin two differentways.Thesocalled“long visits” includedfocusgroupinterviewswith communitymembers,the watercommitteeanda groupof women.The interviews were complementedby direct observationsof water systemsandsanitationfacilities. The “short visits’ meant that the teamcameunannouncedto thevillage, checkedthe installations and made informal interviews with communitymembers.Almostall interviewswereconductedin Quechuaor Aymara.

The data were analysedthrough comparisonswith the Yacupaj project and theConsultants’previousexperiences.Moreover,the standardevaluationcriteria of Sidasuchas fulfilment of objectives,relevanceand sustainabilitywere applied. Eachconsultantin the team was responsiblefor specific sectionsof the study, but allconclusionsandrecommendationswerediscussedthoroughlywithin theteambeforetheywere presentedto UNICEF, Sida and the UNDP-World Bank Water and SanitationProgrammeat two meetingsSeptember26. Thereportwascompiledby the teamleader.

2

Final report

1.3. Outline of the report

In line with thetermsof referencefor theconsultancy,a largepartof thereportcoverstheUNICEF programme.Moreover,ascalled for in the Terms of Reference,the reportincludesboth a generalassessmentof theProgramme’sprogressand adetailedtechnicalanalysisof thework methodologies.Somesectionsof thereportthereforegive detailedinformationonengineeringandmethodologies.The Missionhasdonethis on purposesinceit concludedthatthis informationcouldbebeneficial for the future work of theProgrammes.

The reportstartswith a brief descriptionof the waterand sanitationsectorin Boliviawhich servesasthebasisfor the analysisof the Programmes’progress,especiallytheUNDP-World BankWaterandSanitationProgramme.

Chapters3 and4 coverthewaterandsanitationsub-projectof PROANDESandincludetheconclusionsandrecommendations.TheUNDP-WorldBank Programmeis describedandanalysedin chapter5 while theprojectproposalfor marginalurbanareasand otherfuture Swedishsupportis coveredin chapter6. Annex 6 includesa summaryof therecommendationsgiven in thereport.

3

Final report

2. WATER AND SANITATION IN BOLIVIA

Bolivia hasoneofthe lowestlevelsofwaterandsanitationcoveragein Latin Americaandin theworld. Onthenationallevel, 58%of the populationhasaccessto potablewaterandonly 43% to safeexcretadisposal.Naturally thecoveragein rural and marginalurbanareasarefar below thenational figures.

Thediverseculturesandecologicalzonesof the countrymakeit morecomplicatedtodevelopnationalplansand policiesfor thesectorin comparisonto othercountrieswithmorehomogenousconditions.

In 1991,aco-ordinatingunit for both ruralandurbanwaterandsanitationwascreatedinBolivia. The institution, abbreviatedDINASBA, was given a wide range ofresponsibilitieslike for example:

— prioritise investmentplansfor thesector,— developproposalsfor internationalfinancing,— co-ordmatethe actorsin thesector,— developanddisseminatenormsandstandardsfor thesector,— promoteappropriatetechnology,— maintain adatabaseon thenationalcoverageandinvestmentneed.

Althoughbeingan importantinstitution in Bolivia, theorganisationis restrictedduetolackof humanand financial resources.Currently,eight professionalsareworking inDINASBA and this is far from sufficient to undertakeall theassignedresponsibilities.Financing hasbeen provided the Government,UNDP and PROSABAR, but theorganisationis dependenton externalfinancing to maintainthecurrentlevel ofactivities.It is probablethat theDirectorof DINASBA will be financedthroughthe Civil ServiceReformProgramme(CSRP) which will start in 1997, however the CSRPdoesnotforeseethefinancingofotherprofessionalpostsatDINASBA..

Another problemfor DINASBA is its hierarchicalpositionwithin the Government.DINASBA is a “direcciOn” in the sub-secretariatof urbandevelopmentwhich in turndependson thenationalsecretaryof popularparticipationand belongsto theMinistry ofHuman Development.The status of “sub-secretary”limits DINASBA’s power toinfluencethe actorsin the sectorand to pron0otethe sectorat the governmentlevel.However,accordingto the latestinformationreceivedit is possiblethat DINASBA willbecomeasocalled“Superintendenciade Aguas’,which is regulatedin thespecialSectorLaw (SIRESE)“Ley del Sistemade RegulacionSectorial’.Sucha changewould implythatDINASBA would havemorepowerto co-ordinatethewaterandsanitationsector.

4

Final report

Thedifferent sectoractorsareillustratedin figure 1. Note that the illustration doesnotindicaterelativeimportanceof the actorsnorany hierarchy.Moreover,the illustrationservesasan introductionto thewatsansectorand should not be regardedto be 100%correct.Most of theactorsaredescribedin sections2.1. and 2.2..

URBAN

WATER COMPANTESAN) COOP.

NAT. REG.DEV. FUND(FNDR)

Fig 1: TheBolivian WaterSector

RURAL

MUNICIPALITIES

[~ESAPAl UNiCEF

5

Final report

2.1. Rural areas

Thecoverageof basicwaterandsanitationservicesin therural areasarevery low. It isestimatedthat only 24% of thepopulationhaveaccessto potablewaterand thatonly 18%haveasafesystemfor excretadisposal.

The rural water and sanitationsector itself is in a processof structural change.Traditionally,thesectorhasbeencharacterisedby a coupleof specialisedinstitutions,likeCARE, UNICEF, and CARITAS, which have acted independentlyand haveobtainedtheirown funding. The Social InvestmentFunci (SIF) hasalsofinancedconstructioninrural watersupplyandschoolsanitation.Theinvestmentsin thesectorhavebeenlow andtherehasnotexistedenoughcapacityto implementlargeprogramsin waterandsanitationservices.

In 1994,theWorld Bankdecidedto financea largenationalrural water and sanitationprogramme,PROSABAR to be administeredby DINASBA. Theprogrammemanagedtoobtain supportfrom OPEC,andotherdonorssuchastheNetherlands,Belgium,Japanand the EuropeanCommunityare interestedi.o supportthe programme.The alreadycontractedfunds for 1995 to 2000 amount ~oUS $ 35 million which meansthatPROSABAR is a very largeprogrammefor Bolivia. It is interestingto comparewithUNICEF, which is oneof the largestactorsin therural watsansector— PROSABARhasapproximately9 timesmorefundsthanUNICEF hadfor theperiod 1993 to 1998.

Otheractorsin thesector,suchas CARE andCARITAS, havemoreproblemsto receiveindependentfundsfor waterand sanitationprojectsthantheyhad before.Theyarenowdoing someimplementationfor PROSABAR.

Thegeneralobjectivesof PROSABARare:

— to improvethehealthandtheliving conditionsofrural populationin Bolivia,— to achievean efficientutilisation andsustainabilityof the waterand sanitation

systemsbuilt.

In addition to the constructionof systemsand the training of beneficiaries,theProgrammeincludesa componentfor institutionaldevelopmentof sectororganisations.Specialeffortswill be madeto strengthenDINASBA, and theProgrammehasasystemfor monitoringand evaluationof resultswhich will givecontinuosfeedbackto thesector.

ThestrategyofPROSABARincludesa largesocialcomponentwith for examplehygieneeducationandtraining for administration,operationand maintenanceof installedsystems.Theprojectsareto be executedby NGOs,organisationsand privatecompanies,and SIFis responsiblefor contractingfor the constructionof infrastructurewhile PROSABARcontractsfor thesocialcomponent.

6

Final report

During 1994 and 1995, PROSABARdevelopedthe methodologyof work which wasbasedon experiencesfrom the sector. Organisationslike UNICEF, CARE and theYacupajprojectparticipatedin meetingsto givetheirexperiencesto PROSABAR’.

The Mission believesthat PROSABARcould be importantfor the rural water andsanitationsector in Bolivia. Firstly it has the potential to attractmore funding forinvestmentsfor poorrural people.Secondly,dueto its locationwithin DINASBA, theProgrammecanbebasisfor acontinuosimprovementof normsfor thesector,andit canalso be a tool for DINASBA to influence otheractorsand to co-ordinateactivities.Thirdly, PROSABAR’ssocialcomponentis advancedand couldthereforebea valuablecomplement to organisationslike SIF that concentrateon the construction ofinfrastructure.Fourth,PROSABARcould be thetool to co-ordinatedonors’activitiesinandcontributionsto thesector.This would probablybeoneof thefirst countrieswheretheco-ordinationis doneinternallyinsteadof in donors’offices.

However,PROSABARis facingsubstantialproblemswith implementation.Sofar only15 water systemshavebeenor arebeing built, 100 projects are in the processof“bidding and 267 havebeenapproved.Furthermore,no sanitationprojectshavebeenapprovedor executedso far. The goal to reach2000 villagesor 346,000personswithpotablewaterand234,000with safeexcretadisposalup to year2000will thereforebedifficult to achieve.

It canbe concludedthat theruralwaterandsanitationsectorfinancially is dominatedbyPROSABAR.TheotheractiveactorsaretheSocial InvestmentFundandUNICEF. It isimpossibleto foretell if PROSABARwill be able to live up to the expectations,andtherebydominatethesectoralsowhenconsideringthe levelof implementation.Whateverits result,it will influencetheruralwater andsanitationsectorin Bolivia — positively ornegatively.

2.2. Marginal urban areas

Thecoverageof waterandsanitationin urbanareasare78%and 63%respectively2.Butonly 39%of thehouseholdsobtain their waterfrom a householdconnectionor a yardpipe.Themajorityof the39% whodo nothavean improvedservicearebound to live inmarginalurbanareas.Thesituationis similar for sanitationservicesfor which 49% of thehouseholdsareequippedwith improvedsanitationfacilities, i.e. connectionto sewerageor improvedon-sitesanitation.In additionto thelevel of coverageit shouldbe mentionedthat theurbanpopulationis growingat an averagerateof 4,1%annuallywhile theruralpopulationremainsstable.

Sewagecoverageis alsoconsideredto be lower in thepoorerareasofthecities.

Themunicipalitiesareresponsiblefor waterandsanitationserviceswithin its area,andtheservicesareprovidedby municipally ownedenterprises,co-operativesand privatecompanies(watercompanies).Thesectororganisation,ANESAPA, estimatesthat 180

i Like in all othercircumstances,the participationin thesemeetingsdid not meanthat PROSABAR

adoptedthe methodologiesof all theorganisations.For example,PROSABARchoseto usea differentdesignand constructioncnteriacomparedto UNICEF.2 World ResourcesInstitute etal., World Resources1996 - 1997,OxfordPress.

7

Final replrt

differentwatercompaniesareactivein theurbanareas.Out of these,ninearemembersinANESAPA and theseninecoverapproximately50% of theendusers.However,morethan 50% of thewatercompaniesarenot organisedwhich also meansthat theirlevel ofco-ordinationis lower.

According to the plans of the Government,the municipal watercompanieswill beprivatisedin thenearfuture.

Thewatercompaniesdo not normally attendthemarginalurbanareas,i.e. low incomeareas.For a variousnumberof reasonslike for examplelack of economicresources,problemswith legal land titles, theseareassometimesfall outsidethe municipaldevelopmentplans.

Moreover,themarginalurbanareashavereceivedlittle internationalsupportto improvewaterandsanitationservices,and theMissior did not find onedonorwho was active.Largedonorslike theInteramencanDevelopmentBank and theGermanorganisationGTZ supporturbanor peri-urbanareasbut do not seemto havespecialactivities formarginalurbanareas.Thereare no normsor regulationsfor investmentsin marginalurbanareas,andtheexperiencesthatexist in thecountryarenotknownby thesector.Inshort, the marginalurban sectorin Bolivia lacks co-ordination,norms,regulations,technicalsolutionsandinvestmentcapital.

8

Final report

3. THE WATSAN COMPONENT IN UNICEF’S PROANDES

UNICEFsupportto thewaterandsanitationsectorin Bolivia startedin 1960with a smallfunding from the UNICEF office in Peru.With the startup of the UNICEF office inBolivia thesupportincreased,andbetween1970and 1982 fundingandassistancewasprovidedto thewaterandsanitationactivitiesof theMinistry of Health.

Due to changesin the Government’spolicy, the supportto the Ministry of Health’snationalprogrammewasin 1983replacedby adirectassistanceto fourdepartmentsviathedepartmentaldevelopmentcorporations,CORDEPAs.

ThePROANDESprogrammestartedin 1989,and thewater andsanitationprogrammewas includedasa subprojectin PROANDES. Thefirst four yearsthemain sourceoffunding came from the SpanishUNICEF committee.The Swedish assistancetoPROANDESstartedin 1991. The Swedishfinancial supportthe Watsansubprojectbetween1991 and 1996amountsto US $ 1,143,600.TheUNICEFCommitteein SpainhasprovidedUS $ 2,438,400during 1989 to 1996.

3.1. Project objectives and results

According to the latestproject document,the overall objectiveof PROANDES is to“provide greateraccessto the Andean farmer’s families living in the provincesofnorthernPotosIandsouthernCochabambato necessarybasicservices,to improvedcarefor childrenandmothers,and sufficienthouseholdfoodsecurity”3. Theobjectiveis to beachievedthroughtheimplementationofthe following different subprojects:

— maternalandchild health,— foodsecurity,— child development,— waterandsanitation,— womendevelopment,— administrationofcommunityandlocal development.

The geographicaltarget areais ratedas the poorestin Bolivia, and the total targetpopulationis estimatedto 300,000.

Theoverall objectiveof thewaterand sanitationsubproject(Watsan)is: “improved andextendedaccessto potablewaterandrural sanitationservicesfor farmers’families in theircommunities”.Theobjectiveis to beachievedthroughtheprovisioncommunitywatersystems,family toilets, school sanitation,sport and sanitationunits and training tocommunitymembers.Theschoolsanitationconsistof two showersandtwo pour-flushtoilets, and thesportandsanitationunit includesa sport field, showersand pour-flushtoilets andlaundryfacilities.

~UNICEF, ProgrammeDocumentPROANDES,June1995.

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Final report

The tableno 1 summarisesplannedandactualoutputsper yearandtypeofintervention4:

YEAR SPENTOR

BUDGETED

US$

# WATER

SYSTEMS

# FAMILY

IOILETS

# SCHOOL

SAN1TAT.

UNiTS

# SPORT

&

SAN1TAT

UNiTS

# WATER

COMMIT-

TEES

TEAINED

# OF

PERSONS

GWEN

HEALTh

AND

HYGIENE

EDUCAT

1989-92

planned

40% of all

villages

40% of all

villages

i.n.a 40% of all

villages

1989-92

achieved

Spain~i,233,000

Sweden.425,000

Italy 103,200

211 systems

= 30% of

villages.

1% of

villages,

i000

120 360 people

trained

1993-94

planned

160 i n a 1 n.a. in.a.

achieved Spain 628,900

Sweden 228,600

SIF 82,600

i65 100 20 i40 4006 people

trained

1995

planned

135 225 28 i.n a 120 courses

at village

level

achieved Spain 206,300

SIF 98,700

143 300 10 20 0 courses

60 people

trained7

i996 planned Spain 370,200

Sweden 490,000

SIF 495,200

i40 1500

397~8

100 i40 mass

education

campaign

total funds &

beneficiaries

1989-1995

total funds 1989 to

1995 3,006.300 111,538 iO,0009 2,25010

320of the

519

committe

es trained

820

Table 1: Plannedandachievedoutputs

Besidestheachievementsshownin the table,theWatsansubprojecthasalsoundertakeninstitutionaldevelopmentof thenineNGOswhichimplementtheprojectsatvillage level.

‘~Sources:informationfrom theWatsanCo-ordinatorandthePlansof Action for 1995and1996.~I na meansthattheinformationis not available.6 Thesereceivedone or two days training in health and hygienesincesome of thesesubjectswereincludedin thecoursesfor watercommittees.‘~ Thesereceivedone or two days training in health and hygienesincesomeof thesesubjectswereincludedin thecoursesfor watercommittees.8 Estimatedthrough:663 latrines* 6beneficiaries= 3,c78latrines.563 pourflush latrinesand 100 VIP.~A totalof 100 sanitationunitshavebeenconstructed.Numberof beneficiariesis approximately100 perunit = 10,000.10 15 units * 150 beneficiaries.

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Final report

3.1.1. FULFILMENT OF OBJECTIVES

Basedon the informationpresentedabove,the following conclusionscanbe drawnaboutprojectresultsandits achievementof outputsandobjectives:

— TheWatsansubprojecthasachievedplannedoutputsin relationto constructionofwatersystems.The projecthassucceededto provide 37% of the targetpopulationofPROANDESwith newor improvedwatersystems.The project hasconstructedanimpressivenumberof systemsperyear,maybethelargestannualquantity in Bolivia.This mustbeconsideredasa substantialachievementof theWatsansubproject.

— The Watsansubprojecthassucceededto attractnationalfinancing from SIF forprovincesin northernPotosfandsouthernCochabambawhich normallyhavereceivedlittle financing from differentnationaland internationaldonors.Furthermore,Watsansubmitted48 projectproposalsfor constructionof watersystemsto PROSABARthreeyearsago. Dueto theslow start up of PROSABAR,noneof the proposalshavebeenapprovedsofar.

— The project hasprovided improvedwatersystemsto thepoorestareain Bolivia,wherealmostno otherorganisationsareworking.

— In spiteof theachievementsmentionedabove,theWatsansubprojecthasnot achievedits overall objective i.e. “improved and extendedaccessto potablewaterand ruralsanitationservicesfor farmers’families in theircommunities”.Thereasonis that all otherareasexceptconstructionof watersystemshavelaggedbehind.The plannedoutputplannedfor family toiletshasnot beenachieved,and hasprovidedlessthan 2% of thePROANDES targetpopulationwith accessto toilets. 199 watercommitteeshavenotreceivedsystematictraining in administration,operationandmaintenance.This represents41% of thewatersystemsbuilt. Less than 1% of the targetpopulationof PROANDEShavereceivedsystematictraining in healthandhygieneeducation.

3.1.2. RELEVANCE

The relevanceof the project should be analysedfrom two perspectives:relevanceinrelation to theSwedishobjectivesfor internationalco-operationandrelevancein relationto theneedsofthetargetgroup.

Theprojectis coherentwith theobjectivesfor Swedishinternationalco-operationsinceittargetsthepoorerstrataof thepopulationandwill leadto improvedliving standardsandinfluencetheeconomicdevelopmentof thetargetpopulation.

Therelevanceof theprojectfor thetargetgroup,i.e. whetherit solvesamajorproblemfor them, can be analysedfrom two different perspectives:improvementin livingconditionsandin thehealth.

By bringing water closer to the houses,the work burdenof women and childrendecreasesand more time canbespenton otheractivities. Moreover,better accessto

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Finalrepcrr

water,facilitatesseveralactivitiessuchasconstructionandirrigation”. Theconclusionisthat theWatsansubprojectleadsto an improvementin theliving conditionsof thetargetgroup. Furthermore,the projectaddressesthehealthsituationof thetargetpopulation.Throughtheconstructionof the watersystems,the beneficiariesget accessto both alargerquantityand a betterquality of water.Dependinghow thewateris used,thehealthofthebeneficiariescanimprove.

Although theproject mustbeconsideredto be relevantfor thebeneficiaries’health,itwould havebeenmuchmoreso if it had put rrtore emphasisto sanitationand hygiene.Studieshaveshownthat accessto safeexcretadisposalsystemsandhygieneeducationnormally haveahigherhealthimpactthanwatersupply.

Theoverall conclusionis that theprojectis relevantbut that it shouldhavebeengivenanintegratedapproachwith equalemphasison water supply, sanitationand health andhygieneeducation.

1~During thefield visits the team saw severalexamplesof water from the systemsbeing usedforconstructionand irngation.Naturally this is not truefor all villages.

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Final report

3.2. Costs

A costanalysisshouldbe donewith caution.Thestartingpointis that thenormalsystemsfor cost calculationsdo not give enough data for comparisonsbetweenprojects.However,althoughreliabledatais not available,costanalysisarean importantpartof aprojectassessmentsinceit givesan ideaofthecosteffectivenessoftheactivities.

Thecompromisebetweenthis necessityfor analysisandthelackof datais to criticallyanalysecostdatafrom differentprojects,adjustthecalculationsto allow for comparisonsof costsand thancomparethedatacarefully.Thepurposeof thecomparisonshould notbe to establishthepercentageof costdifference,but ratherto seewhethertheevaluatedprojectis within an acceptablecostrange.

In Bolivia theMissionobtainedinvestmentcostdatafrom UNICEF, SIF, YacupajandPROSABAR. The datacould not be directly comparedsince all projectshad useddifferentsystemsfor costcalculation,for exampletheYacupajdatadid not includelocalmaterial and labour while the UNICEF datadid not include V.A.T. on materialspurchased.TheMission re-calculatedtheinvestmentcostsfor the differentprojectstocreateabasis for comparison.Although a lot ofeffort went into thecalculation,theresultmustbe consideredasan approximation! The tablepresentstheestimatedinvestmentcosts in US $ for UNICEF andan averageofthethreeotherprojects,“others”.

Table 2. Estimatesof investmentcosts

Whenanalysingthefigurescautiously,it canbe concludedthat:

— UNICEFswatersystemsandtoilets arenotmoreexpensivethanotherprojects,— UNICEF haslow investmentcostsfor watersystemsbecausetheorganisation

doesnotpay V.A.T., anduseslesscosily constructionmaterialandhasomittedvalvesfrom thedistributiontanks,

— in comparisonwith theotherprojects,UNICEF’s toiletsarecheaperdue to areductionin externalmaterialandlabour.

TheMissionestimatedthecostof administration,operation& maintenancefor an averagewater system,a pour-flushand a V.I.P. toilet and a sanitationunit’2. The estimatedmonthlycostin Bolivian currencyperfamily is indicatedin thetable. 1 Bolivianoequals

12 Cost calculationis basedon theestimatesof investmentcostsmadepreviously,an estimationof therequiredA,O&M peryearand10% of annualinflation.

Description Water Systems Pour-flush Toilet V.I.P. ToiletUNICEF Others UNICEF Others UNICEF Others

Local material 573 366 26 20 26 17Othermaterial 2050 5513 20 44 16 33

Local labour 862 2 725 25 26 25 29Other labour 407 318 0 9 0 13Supervision & Training 462 1 517 8 17 8 16

TOTAL 4354 10439 79 116 75 108

Costperbeneficiary 36 43 13 19 13 18

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approximately1,30 SEK. Thetableincludesfiur differentalternatives:thelowestcostiswithoutoperatorandrecoveryi.e. collectionof fundsfor replacementofthesystemattheend of its life time withoutexternalfinancing. Thehighestcostalternativeis number3which includesboth thepaymentof anoperatorand recovery.

Table 3: Estimationofcostsofadministration,operation andmaintenance

Section3.8. includescommentson thecalculatedcostsfor A, 0 &M.

3.3. Administrative costs

The administrativecosts for the Watsansub-projectare estimatedin the table. Thecalculationis basedon figuresfrom 1995andincludesthreelevelsofadministration:theUNICEF offices in La Pazand Cochabambaand the NGO offices at the departmentlevels.

Table 4: Estimation of administrationcost

Description Water S. Toilet Sanitation unit1. A,O&M with operatorwithout recovery 2,80 0,612. A,O&M without operator without recovery 1,44 0,58 0,203. A,O&M with operator with recovery 7,82 3,034. A,O&M without operator with recovery 6,49 1,53 2,63

Item % Annual Adm. cost Financed by:Watsan Administr. cost

UNICEFLa Paz US $ US $Rentandutilities 6% 100% 97 411 5 845 UNICEF

Telephoneandfax 6% 100% 35 059 2 104 UNICEFSalariesco-ordination 20% 100% 62 000 12 400 Spain/ Sweden

Salariessecretaries 30% 100% 23 000 6 900 Spain / Sweden

Salariesdirectory level 6% 100% 80 000 4 800 SpainI Sweden

Central administration 6% 100% 0 UNICEF

UNICEFCochabamba

Rentandutilities 80% 100% 1 360 1 088 Spain I SwedenSalariesadministration 60% 100% 16 500 9 900 Spain/Sweden

Salariesdriversandmess. 60% 20% 10 900 1 308 Spain / SwedenSalariesco-ordination 80% 30% 42 700 10 248 Spain/ SwedenOffice costs 80% 100% 4 584 3 667 SpainI SwedenEquipment 80% 100% 0 0 Spain/Sweden

Telephoneandfax 80% 100% 3 700 2 960 Spain / Sweden

NGOsRentandutilities 100% 100% 1 200 1 200 Spain/ Sweden& NGOs

Administration 5% 100% 50 3 Spain I SwedenTOTAL 62422

TOTAL TURNOVERWATSAN 1995 513900%of admmistration cost UNICEF BOLIVIA 12%

%covered by UNICEF 20%% coveredby SpainandSweden 80%

Additional costrecoverycostUNICEFNewYork 6%

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TheSida funds covertwo typesof administrationin UNICEF, oneis the socalledcostrecoverycostwhich is 6% of thetotal funds providedby Swedenand which is deducteddirectly by UNICEF Headquarters.The other type of administrativecost is theadministrationof theWatsanprojectin Bolivia. Theadministrationin Bolivia is estimatedto 12%of thetotalWatsanbudgetfor 1995’s.

20%of theadministrationis paidby UNICEF andtherestby thesupplementaryfundingto theproject,i.e. by SidaandtheUNICEF Committeein Spain.

The level of administrativecostsfor Watsanin Bolivia i.e. 12%, canbe consideredreasonablefor a programmeof its size.But if thecostrecoverysharefor UNICEF NewYork is included theadministrationcostsrepresent18%ofthetotal programmecosts.

Like for everydevelopmentco-operationit is importantthat Swedencontinousto pressfor the lowestpossibletotal administrationcostsfor theprojectsthat it supports,andthatSida negotiateswith the agenciesto minimise theSwedishcontribution to the overalladministrationcost.

Again, considering~jjj,y theWatsanoperationsin Bolivia, thecostscanbeconsideredreasonableThis also reflectsthe Mission’s generalimpression— that the Watsansubprojecttries to keep costs low and to use as much funds as possible for thebeneficiaries.Moreover,in 1996thecostrecoverycostchargedby UNICEF New Yorkwasreducedto 3% andthetotal administrativecostsaretherefore15%.

3.4. Systems for cost calculation and cost recovery

Like manyotherwaterand sanitationprojects,theWatsansubprojectdoesnot haveasystemfor calculation of total investmentcost per constructedsystem.The NGOsinvolved in the project calculatethe cost of material and labour per system andcommunity,but thesecalculationsare not complete,sincethey for example,do notinclude cost of training in administration, operation and maintenanceand thecommunity’s contribution in labourand local material.

In 1994 and 1995, UNICEF calculatedthetotal investmentcost of 67 watersystemsimplementedby the Project.The calculationwas madethrougha specialstudy andthereforeit is not equalto a systemthat continuouslyproducesthetotal investmentcostperconstructedsystem.

Naturally it would be good to have a systemfor cost calculationsincethis allowscomparisonsbetweendifferent implementationstrategiesand provides completeinformation to donors.Such a systemwould be relativelyeasyto develop,but all thesameit would requiredevelopmentof tools and trainingof personnel.ConsideringthattheWatsansubprojectcontinuouslytries to decreaseinvestmentcosts,andthat projecturgently needsto improveseveralother areas,the developmentof a completecostcalculationsystemmustbe considereda low priority for themoment.

13 The administrative costspaidby theNGO5 arenot includedin the calculation.Howeverthesecostsare

bound to be quitesmall and could increase the administrativecostby amaximumof 1%.

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However, it is important that the project has sufficient information to makecosteffectivenessanalysesof differentstrategiesfor improvedsanitation.Sincethebasisforcosteffectivenessanalysesis costinformation,the projectneedsan easysystemfor costcalculationof sanitationinterventions.Sucha systemcanbe limited to thecontributionsof UNICEF andtheNGOs.

An analysisof the level of cost recoverymust startwith a definition of the term costrecovery. Thedegreeofcostrecoveryis definedasthe% of total investmentcostthatiscoveredby the beneficiaries.The beneficiaries’contributioncanbein theform of freelabour,local materialand/ or cash.

UNICEF applies a system where the communitycontributeswith local material,transportationof localmaterialandunskilled [abourfor theconstructionof thesystem.Thedegreeof costrecoveryvariesfrom systemto system,but accordingto thestudy ofinvestment costs conducted in 1994i4,thebeneficiariescontributeon average36%of thetotal investment cost.TheYacupajprojecthad a higherlevel of costrecoveryfor watersystems than the Watsan subproject. In addition to providing local material,transportationof local materialandunskilled labour,the beneficiariespaid30% of thecost of non local material.

However,UNICEFhasa higherlevel of cost recoveryfor toilets thanYacupaj. In bothprojects,thebeneficiarycontributeslocalmaterialandlabour,but theYacupajutilisedmorenonlocal materialfor thetoilets andsometimesalsoskilled labour.TheMissionhascalculated that UNICEF costrecoveryrateis 66% for pour-flushtoilets and74%for VIPwhich should be compared to the 38% oftheYacupajproject.

The questionis if UNICEF should increasethelevel of costrecovery.This questionisvery difficult to respondto sinceit dependsDli variousfactors.Thediagram (Fig. 2)illustratesthemostimportantfactorswhendefiningtheappropriatelevel of costrecoveryfor a giventypeof technologyandprogrammebudget.

MAX~UM

MINIMUM

Number of communitiesprovided with water

i4 UNICEF Bolivia, The Costof Development — Waler Systemsin Bolivia, Reportnr 2, 1995.

contribution perbeneficiaryor% of costrecovery

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Final report

Fig 2: Definition of cost recovery level

Theverticalaxeindicatesthelevelof costrecoveryor thecontributionper beneficiaryandthecloserto thearrow, thehigheris thecostrecoveryor thecontribution.Thehorizontalaxeshowsthenumberofcommunitiesthatcan be providedwith water.

An horizontalline markedwith “maximum” indicatesthehighestpossiblelevel of costrecovery.This maximumlevel is determinedby the beneficiaries’willingnessto pay’5for the services. The project canneverrecovermore thanthecommunityis willing topay. Sometimes however,thewillingnessto paycan be higherthan the availability ofcash in a given moment of time. If this is the case, theprojectcangive thecommunityacredit that is amortisedovertime orthe contributioncanbe given in labour or material,i.e. not in cash.

An horizontalline markedwith “minimum” showsthelowestappropriatelevel of costrecovery. Below this level of cost recovery, the beneficiaries” contribution is notsufficient to create a feeling of ownership andcanthereforeharmthe sustainabiity of thesystem. Sometimes it is argued that the higher the cost recovery, the higher thesustainability of the system. This argument has never been proved, and it seems morelikely that as long as the contribution signifies a sacrifice large enough a highercontribution will not increase the chance of sustainability. For example, if a family hasspent 20 days to carrysand and stones and dig ditches for the community water system,it is not likely that a cashcontributionof 50 bolivianos will further increase theirwillingness to maintainthesystem.

The line marked with “A” and “B” shows the hypothetical number of communities thatcan benefit from a water system at different levels of cost recovery, given a certainamount of financing. For example with a costrecoveryof 30% the project canprovide100 villages with watersystems, while with a cost recovery level of 60%, 130 villagescanbe attended.As canbe seenfrom this discussion,the decisionof level of costrecovery,ultimately is a decisionof how largesubsidiesshould be given to how manyvillages.

Since no Willingness-to-paystudy hasbeenmadeby UNICEF, it is impossibletodeterminethemaximumlevel of costrecoverypossiblefor constructionofwatersystemsin dispersedcommunitiesin NorthernPotosiand SouthernCochabamba.Yacupaj’sruleof 30%of cashcontributionindicatesthat the level of costrecoverycouldbe higherthanUNICEF’s. However,it is unclearif thecommunitiescoveredby Yacupajhadabettereconomicsituationthanthecommunitiescoveredby theWatsarisubproject.Therefore,theexperienceof Yacupajdoesnot provethat 30%of cashcontributionwould work inthe UNICEFprojects.

TheMissiondoesnot believethatUNICEF’s currentlevel of costrecoveryis below theminimum level necessaryfor sustainability.Factorssuchastraining of committeesand

15 Willingness to pay is considered similar to the concept of demand used in economics,i.e. meaiungthat the person both can and want to pay for the services.Thewillingnessto pay is thereforea functionof the desire and the ability to pay.

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Final report

active involvementof communitiesaremore]ikely to increasethesustainabilityof thesystemscomparedto increasedcostrecovery.

Thedecisionregardingthelevel of cost recoverymustbe takenby UNICEF itself, butone aspect that should be consideredis the financialpolicy developedby PROSABAR.

PROSABARplansto demand30% in cashcontributionfrom the municipality and/orcommunitybenefitingfrom thesystem.However,it is not clearhow this policy will beappliedin practiceandhow largethecommunilycontributionwill be. If thecommunitiesattendedby PROSABAR has the sameeconomiclevel asthe onesbenefitingfromPROANDES,it would seemreasonablethat thesamelevel of costrecoveryshould beappliedin both the projects.But if PROSABAR’s financialpolicy in practiceexcludespoorcommunities,it is importantthat UNICEF continuesto apply a lower level of costrecoverythanPROSABAR.

3.5. Technology used for water systems

Theoverall conclusionis that UNICEFis using,an appropriatetechnologyin termsofits“functioning,easinessto operateandmaintainand its cost”. TheWatsansub-projecthasbeensuccessfulin thetechnologyusedin thewatersystems.

TheWatsansubprojecthassystematisedandS] mplified thepre-investmentphaseof theprojects,i.e. themethodologiesusedfor studiesanddesignhavedecreasedboth thetimeandmoneyrequired.In this wayUNICEFhas1)eenableto attendmorecommunitiesforagivenbudgetand timeperiod.

The construction technology used are within the national norms but UNICEF hascontinuously improved it — to make it more appropriate and cheaper. The program usesa standard design and so-called politubo instead of PVC, which lowers the both thecostof materialandlabour.

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3.6. Sanitation

Thenumberof toiletsbuilt aswell astheinvestmentcostswerepresentedin thesections3.1. and 3.2.. In this section,a detaileddescriptionand analysisof the sanitationtechnologyandwork methodologywill be made.

3.6.1. FINDINGS FROM THE FIELD VISITS

Fourspecificsanitationtechnologieshaveso far beenusedin theprogramme:thesimplepit toilet, theVIP toilet, thepour-flushtoilet and thecistern-flushtoilet (seeAppendix4).

On the outskirtsof a non-programmevillage in theprovinceA. de IbaneztheMissioncameacrossa seriesof traditional, very simple pit toilets built entirely from localmaterials, seefig 3.

The toilets had been built by thevillagersthemselvesabouteight yearsagoon theadviceof an NGO.Eachtoilet wasusedby oneor two families. Somewerenearlyfull andwereto be replaced by similar structures. The toilets were completelyodour-freeand thecontents drydue to dehydration. For a pit toilet to functionlike this theremustnormallybe urine separation. Due to the low air humidity atthis high level (4,000m) dehydrationof thepit contentwaspossiblewithout any specialarrangements.(SeeAppendix 4: Pittoilet with urine separation,El Salvador.)In the samevillage therewasalso a morerecentlybuilt schooltoilet which seemedto work thesameway,fig. 4.

Fig 3. Self-built toilets

Fig 4: Community-builtschooltoilet

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Final report

In thenextvillage,Camani,we inspecteda similar toilet built by thevillagersaboutayearago.It wasusedby eightfamilies.Thetoilet wasalreadyfull andthecontentsweresemi-liquid. This is what a pit toilet normally look:; like andtherewasalso a markedodour.The difference betweenthis toilet and thosepreviously describedmust be due tooverload.With too manyusersthe liquid loadwill be too high for thenaturaldehydrationof the contents of the piL

In onevisited village, 12 out of 35 householdshad beenprovidedwith socalled “VIPtoilets”. Due to designand/orconstructiondeficiencies(too narrowventpipe, no fly-screen)noneof the toilets we inspectedfunctionedasa VIP toilet. They neverthelessseemedto work fairly well but the addedV [P features(ventpipe and more walls toprovideadarkinterior) increasedthecostwithoutprovidingany benefits.

During our field visit we alsocameacrosssomeflush toilets of varioustypes. Mostofthem wereblockedandfilthy. In somecasesthe flush systemwas broken.Thesewereusually schoolor sportgroundtoilets combinedwith solarshowerunits. We also cameacrossflush toiletsunderconstructionor justcompletedatprivatehouseholds.

All flush toilet systemwe haveseenin the projectareashaveonly one soakpit. Theproject has no experienceof what happenswhen the soakpit has to be emptied.Moreover,thereseemedto havebeenno effectivehygieneeducationexplainingwhy andhowto usethetoiletsandon personalhygienein relationto defecation.

3.6.2. ANALYSIS

The programmehasin practicedefinedsanitationasthemereprovision of toilets. TheMissionwould like to introducea broaderconceptof sanitation16:“Goodsanitationis astateof cleanlinessand ahealthyenvironment,freefrom contamination.Sanitationis theprocessof creatingandmaintainingtheseconditions.”

Themain componentsof a sanitationsystemarenature,society,processand device:

NATURE

— climate— water—soil

__#___:�< 11111PROCESS . DEVICE

— physical — latrine— chemical — toilet—biological —potty

Fig. 5: Componentsof asanitationsystem

Whendiscussingsanitationwehaveto considerall thesecomponentsandnot only thedevice.The social aspectsof sanitationareabsolutelyessentialin the creationand

i6 Source:WHO Working Groupon SanitationPromotion,1995.

SOCIETY— settlementpattern— e:onomy— hibitsandtaboos

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maintenance of a clean and healthy environment. Below each of the components areanalysed for the UNICEFproject area:

Nature

Theprojectareasarelocatedat altitudesof 3000-4000m. Theair humidity is extremelylow (46%),thereis little rainfall (19,7to 140mm per year)thegroundwatertableis lowandthesolarradiationis high. Wateris in shortsupply.Thereis very little vegetationandmuchof thegroundis bare.For mostof theyearthereareno flies. Thegroundis slopingsteeplyandthesoil usuallypickable.

Society

Thetargetpopulationis living in isolatedvillagesconsistingof smallclustersof houses.95%ofthe rural populationis living in “poverty” or “extremepoverty” (calculatedby theUnidadde AnalisisdePoliticasSocialesof theMinisterio de DesarolloHumanoon thebasisof the 1992census).

There seem to be no strong taboos related to the disposal or reuse of human excreta.Wherewell functioningtoiletshavebeenprovidedtheyarealso used.Peopleusesolidmaterialsfor analcleanmg.

Process

Particularlyin poorrural communitiesit is essentialto usehumanexcretaasfertiliser andsoil conditioner. The urine and faeces excreted by one person in a year contain thenitrogen and micro nutrients requiredto grow the food consumedby that person.However, before reuse the pathogenic organisms in the excreta must be destroyed orrendered harmless. This can be done through a number of physical, chemical andbiological processes including heating, dehydration, and decomposition.

Device

Every sanitationsystemincorporatessomekind of devicefor receiving,storing and/orprocessinghumanexcretaandanalcleaningmaterial.In its simplestform the“device” isjust the surfaceof the ground. It can also be a shallow or deephole, a potty, acompostingtoilet, a flushing panconnectedto soakpit or septictanketc.Somedeviceshavethe function of receivingand temporarilystoring the excreta.Othershave thefunctionoffacilitating thedestructionof pathogenicorganismsin thefaeces.

Taking all thesefactorsinto consideration,whatwould be asuitablesanitationdeviceforthe targetcommunities?

* thefact thatwateris in shortsupply indicatesanon-flush system;* the use of stones etc. for anal cleaning indicates a drop technology;* the low humidity indicates a desiccatingprocess;* the intense solarradiationindicatesthefeasibility of asolarheateddevice;* thepoverty, the subsistenceeconomyand thefalling soil fertility of the target

areaspointata reusesystem,preferablybasedon separationof urineandfaeces.

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Such devices do exist in various partsof theworld: the in-housedesiccatingtoilet inLadakh,the “Septum” toilet in Sweden,the “Sirdo Seco”toilet in Mexico, the ‘Tecpan”toilet and the pit toilet with urine separation,both in San Salvador, the “InodoroAbonero” promotedby FUNHABIT in theProvinceof Cotopaxi in Ecuadorand theLASF (Letrina AboneraSecaFamiliar) promotedby UNICEF in CentralAmerica (seeAppendix4). By studyingeachof themit shouldbepossibleto developmodelssuitablefor and acceptableto theWatsansubproject’stargetcommunities.Theconditionsfor adry, reuse-basedsanitationsystemin theproject areasarein factso favourablethat afairly simpledevicewould do.

3.6.3.CONCLUSIONSAND TECHNICAL RECOMMENDATIONS

The generalimpressionof the Mission is that where toilets (of whatevertype) areavailable and functioning reasonablywell theyarealsoused.

Conventional, simple pit toilets can functionvery well in theprojectareas,particularlyifthe users add somedry material (soil, ash,husks) afterdefecation.The lessurine thatenters the pit, the better. Men and children sho aid therefore be encouraged to urinate in asimple urinal outside the toilet. (The urinal could be a shallow pit filled with a mix ofgrass and animalmanure.)This typeof toilet canbe built entirely with local materials,possibly with the exception of the squatting slab which for durability and ease of cleaningshould be made of reinforced concrete or ferrocement.

There is a great scope for developing pit toilels of a new design, particularly adapted tothe terrain (steep slopes) in the project areas.

There is no need for the VIP technology in the dry areas of the Altiplano sincemorecost-effective alternatives are available. Fly-breeding in toilets is not a problem at thesealtitudes. Thus there is no need to create a dark room above the squathole. Nor is a ventpipe justified unless the toilet is placed close to the house.

Toilets with water-seal are not suitable where water is in short supply and where peopleuse solid material for analcleaning.The emptyingof the soakpit is a particularlyunpleasant task where there is a single soak pit.

The potential horticultural/agriculturalvalue of humanexcretaseemsto be virtuallyunknownto thevillagersin theproject areas.On theAltiplano thereis a greatscopeforreusing urine and “depathogenized”faecesas fertiliser and soil conditioner. Thisimportantaspectofsanitationshouldthereforebe included in the programme.

Toilet prototypesfor reuse,so called “ecological toilets” should be developed,forinstance in co-operation with the Sida-funded SANRESprogramme (an internationalR&Dprogramme for ecological sanitation). The SANRESprogramme hasaccumulatedand documented experiences of various typesof dry sanitation systems in high mountainareas around the world (Ecuador, Guatemala, Mexico, Pakistan, Ladakhllndia, andBhutan). These experiences could be usedin thedevelopmentof sanitationsystemsforsettlements on the Bolivian Altiplano. The Mission’s impression is that natural as well associal conditions in the programme areas would make it possible to develop relativelysimplebut still effective and safe toilets for ruralaswell asurbanhouseholds.

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Final report

School toilets serve at least two purposes: to make it possible to keep the schoolcompoundand its immediateenvironmentfree from faecal contaminationand tostrengthen the health and hygiene messages of the school curriculum. As the schools intheprojectvillagesareusuallysmall, asimpletoilet similar to thepit toilet for householdsoutlined above,might do. But to servethesecondpurposethe toilet shouldbe durable,easyto use,easyto cleanandodour-free.It mustalsohaveeasy-to-usehandwashingfacilities.

A school toiletwith its handwashingfacilities is asmucha partof theschoolasis theclassroom. It should therefore be built together with and to thesamestandardsastherestof theschool.

A schooltoilet is subjectto muchheavieruseand abusethana householdtoilet andshould thereforebe given a better finish, more easy to keep cleanand to maintain.Consideringthespecificconditionsin theprojectareaswe recommendfor schooltoiletsregularpit toilets with vent pipesplus specialurinalsfor boysaswell asfor girls. Analternativecouldbe pit toilets with urineseparation.

No type of communal toilet, including school toilets, can function properly withoutsupervision and regular cleaning and maintenance.

3.7. Hygiene education

Health and hygiene promotion is theweakestcomponentof theWatsansubproject.Insome villages there has been no healtheducationor hygiene promotion whatsoever. Inother cases there might have been a few meetingsorevena shortcoursebut nothingonthe scale required.

As part of the programme UNICEF is providing sanitation units with solar heatedshowers, see fig 6 and 7. Theseunits areusuallycombinedwith toilets.Someofthemare located at schools, some at sport grounds.

Fig 6: Shower/toiletunit with solar heater(perspective)

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Final report

Fig 7: Shower/toiletunit, standardplan

060

Manyof theunits visited by theMissiondid rot function properly.Theyareexpensiveand over-engineered,and thecommunitiesare not ableto operatearid maintain themproperly.

Betterhealthand hygienecannotbe achievedthroughengineeringmeasuresalone.Anyinterventionin the field of watersupply and5anitationmustbeaccompaniedby, evenprecededby, effectivehealthand hygieneeducationwith theparticipationof thetotaltargetpopulation,schoolchildrenaswell asadultsboth menandwomen.

PROANDESstrategyfor waterandsanitationis basedon theassumptionthat to achieveits healthobjectives,everyhouseholdmusthaveaccessto high qualitywatersupplyandsanitationinstallations.A hygienic toilet, onewhich effectively isolateshumanfaecesfrom theenvironment,is traditionally regardedasa prerequisiteto improvedhealth.Insomecasesit is so, but a toilet itself cannotimprovehealthas indicatedin thefigurebelow.

oncho d, ocero 0 60

-~t.00,

0

0 a

0 0

0

o

—t Q~8

4~—- - I —-- -— -

0 !~~_~ I ~

0!0 - ~ ~-~-~-r0 ~°

060 058

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Final report

Fig. 8: Faecal-oraltransmissionrouteswith someof the importantbamers.The diagramillustratesthe

point that no toilet canprevent the spreadof entero-pathogens.

Most toilet typeswill breakthe “food” , “fluids’ and “fields” transmissionroutesandsomewill alsobreakthe“flies” route.But no typeoftoilet canpreventthecontaminationof fingers and hands - probably the most important route for the spread ofenteropathogens.Here the barrier is provided by appropriatehygiene behaviour,particularly effectivehandcleansingafterdefecation,afterhandlingnappiesetc.,andbefore handling food.

Epidemiologicalevidenceshowsthatevenin theabsenceof toilets,diarrhoealmorbiditycan be reducedwith theadoptionof improvedhygienebehaviours(WHO 1992).Theimplicationof this is that hygieneinterventionsneednot wait for the introduction ofconventionaltoiletsbutshouldprecedewatersupplyandsanitationimprovements.

3.7.1. CONCLUSIONSANDRECOMMENDATIONS

The Watsansubprojectlacks a well definedstrategyon how to developthe hygienepromotion component. There areno suitably trainedand motivatedpromoters,thereislittle involvementof women and thereis no strategyon how to reachwomenandchildren.

Watersupply,sanitationandhygienepromotionareequally importantto achievea healthimpact — and neither is effective without the others. Our most importantrecommendationis thereforethat Watsanmustallocatemuchmoreresourcesto hygienepromotion.Hygienepromotionmustbe thestartingpointfor any intervention.

trad~tionaIlatrine

VIP or flush latrine

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Final report

Alreadywheninitiating contactswith thecommunity,time shouldbe allocatedto abroaddiscussionof healthand hygieneproblemsandhigh-riskbehavioursshouldbe identified.During this preliminaryperiodwomenshouldbe encouragedto form groupsto promotesuchactivities.

The communityshould selecta health andhygienerepresentativeto begiven furthertraining by theWatsansubproject.Hygienepromotionshouldrunsimultaneouslywiththe engineeringinterventionsand must continueuntil improvedhygienehabitshavebecomepart of life of the targetcommunity.This is likely to takeyears ratherthanmonths. The intensive, time-consuminghygieneinterventionsrequiredcannot beundertakenby projectstaff from outsidethevillage. Communitymembers,particularlywomen,mustbe theactual“doers” of thepromotionwork.

Experiencefrom similar programmesin otherparts of the world indicatethat it isnecessaryto providecontinoustraining andsupportto thevillagehygienepromoters.Allthehygienepromotersin acertainlocality (a municipalityorgroupof villages)shouldbeencouragedto form anetwork for mutualsupport.Partof theproject budgetshouldbesetasidefor regular(monthly) meetingsbetweenthe networkmembers.During thesemeeungs,facilitatedby theimplementingNGO,thevillage basedhygienepromoterscandiscusscommon problems,their knowledgeof health and hygieneissuescan beupgradedand theirteachingskills improved.Thesemeetingswill alsoprovidefeedbackto theNGO andeventuallyUNICEF on whatis going on in thevillage.

The provision of training to primary schoolchildren in communitieswherewatsanprojectsareintroducedshould be an importantcomponentof thehygieneandsanitationpromotion strategy of this programme.Ii~each community co-ordination andcollaborationmechanismsshould be establishedwith school teachersso that theywilltakeovertheresponsibilityfor this training to childrenattendingtheschools.UNICEF’sprogrammeshouldprovide training to teachers,adequateeducationalmaterial for eachagegroupaswell asafollow-up of the implementation.

Thehygienepromotionprogrammefor adultsaswell asschoolchildrenshouldfocusonthe promotionof a limited numberofspecifichygienehabits thatwill be put into practiceby the total population - even beforewater supply hasbeenimproved and toiletsprovided:

— washinghandsafter handlingfaecesarid beforehandlingfood,— drinking waterfrom safestpossiblescurce,— preventingwaterfrom being pollutedwhenstored,— depositinghumanfaecesin a safeplace- neveron thesurfaceof theground,— particularcareaboutfaecesof babies,young childrenandpeoplewith diarrhoea,— servingsmall children only freshlycooked or re-cooked food.

Thecurrentstandarddesignof showerunits with solarheatedwater,seefig 7, shouldbecompletelyrevisedasit is neithercost-effective,norsustainable.It shouldbe possibletodevelopasimplebutstill toughanddurableso]ar waterheaterfor village level operationand maintenance.Thereis, for instance,no needfor steaminghot water.Lukewarmwaterwill serve the purpose.There is no needfor pipes, tapsand showerheads.Abucketandaladlewill do. Thereis no needfor pipeddrainageto a soakpit, thick brick

26

Final report

walls, flush-toiletsetc. Onepossibility might be to combinethe showerunit with theschool greenhouse.

3.8. Equality between men and women

The 1992and 1993evaluationsof thePROANDESprogramme17concludedthat womendid not participatesufficiently in the Watsansubproject.The projectrespondedto therecommendationsgiven in theevaluationsby includingwomen’sparticipationin decisionmakingasoneof theprojecttargets.Thetargetis to beachievedthroughtwo strategies.Firstly, at least30% of the membersof thewatercommitteesshould be women,andsecondly,womenshould participatein thetraining courseson administration,operationandmaintenance.

In orderto facilitatethe implementationofthestrategies,thePROANDESsubprojectofWomen’s Developmentconductedgenderawarenesstraining for NGO employeesworking with programme. It is estimated that the training benefited 50%of thepersonnelworking in theWatsansubproject.

The strategies utilised by theWatsansubprojectshouldbe comparedwith the results fromthe Mission’s field visits which showed that:

— women’s participation varies substantially between different communities. Insome of the visited villages, women normally participate in all meetingsandthevillagers tend to recognise both men’s and women’s contribution todevelopment. In other commumties women are excludedfrom meetings.

— women’s participation in the water projects variedbetweenthedifferentNGOs.SomeNGOshadinvolved both womenandmen in meetings regarding thewaterproject and women had takenpart in decisionsregardingthe system. OtherNGOshadonly involved menin theprojectandhadnotevenconsultedwomenon issues such as design of laundry facilities.

— someNGOs do not havesufficient knowledgeaboutgenderissuesand howpromoteequalitybetweenthesexes,

— theWatsansubprojecteaseswomen’swork burdenandcanthereforemaketheirparticipationin otheractivities, suchas women’sdevelopment,easier.

In order to further analyseUNICEF strategiesto achievewomen’sparticipationit isuseful to comparethem with the strategiesutilised in the Yacupajproject.The mainstrategiesof Yacupajwere:

— that both women and men shouldparticipatein all meetingsregardingtheproject,

— to involve womenin decisions regardingthelocationofpublic standposts,— to promote women’s participation in the water committees,

i7 Cortes R., MedinaM., Recacochea R., Molina Rivero R., InformedeEvaluaciOndelPROANDES—Bolivia, 1992.RecacocheaR., Informe deEvaluaciOndelosProgramasde AguaPotabledePROANDES,1993.

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Final report

— to sensitiseprojectbeneficiarieson therolesof menandwomenthroughspecialtraining sessionsatthevillagelevel.

From the aboveit canbe concludedthatthe Watsansubprojecthastried to improveequalitybetweenthesexes,but that thestrategiesutilised needsto be furtherdevelopedandconsistentlyappliedin all communities.Thefirst stepto improveequalityis to assurethat both womenandmenhaveaccessto information, informationis a prerequisitefordecisionmaking and mustthereforebepartof thestrategies.This strategywasusedbyYacupaj through demanding that everyone should participatein projectmeetings.

Anotherimportantstrategy,which alsowasused by Yacupaj, is to involve both men andwomen in the processtowardsequality.Women’sparticipationandempowermentaresensitiveissuesthat changethe powerbalancein the society.Changesin the powerbalance can lead to harsh experiences for both womenandmen.To ease the process foreveryone, it is importantto sensitiseboth men and womenand to openly discuss men’sand women’s roles in society. Recommendations on how Watsan can promote equalitybetween the sexes are given in chapter4.

3.9. Administration, operation and maintenance of installed systems

The systemfor administration,operationand maintenance(A,O&M) of constructedsystems is village based. The NGOsoccasionally give some support, but in general, thecommunity is solely responsible. The municipalities havegenerally not assumedresponsibility for A,O&M of rural waterand sanitation,but as a result of PopularParticipation Law, their roles might increasein Ihe future.

3.9.1. A,O&M OFWATERSYSTEMS

TheWatsansub-project assists the community to form village water committees whichare responsible for the administration and operationof the system as well as for thesupervision of the operator maintaining the system.

The operatorreceivesa practical training Ihrough his or her participation in theconstructionof thesystem(“ayudantedel albaiiil”) andsomeoperatorsparticipatein thecourseon A, 0 &M which reinforcesthe practicaltraining. The watercommitteesaregiven some training through“discussions”with the extensionworkers of the NGOsdunng the construction of the system. Someof Ihe committeemembersalsoparticipateinthe course on A,O&Mwhich is organised by the Project.

Duringthevillage visits, theMissionanalysed~ieknowledgeand the practice of A,O&Mof watersystems,andthemostimportantconclusionsarepresentedbelow.

Theoperatorsgenerallyhavegoodknowledgeof thewatersystems.This is probablyaresult of their participation in the construction,and the fact that systemsuseanappropriatetechnologywhich is easyto operateandmaintain atvillagelevel18.

18 95%of the water systemsuseonly two valvesand3 plugs which is httlecomparedto designs usedbyotherprojects.

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Final report

Oneproblemwhich waspresentboth in YacupajandUNICEF financedprojectsis thedependancyon theoperator.In somevillagestheoperatorhadmigratedor movedandareplacement hadnotbeenproperlytrained.

Preventive maintenance is undertaken in most of thevillages. The maintenance involvesthecleaningof thecollection anddistributiontanksand is done in accordancewith therecommendations of the NGOs.

TheUNICEF policy and methodologyfor administration,operationand maintenanceisnotuniversallyappliedin theprogramme.Firstly, theNGOshavedifferentmethodsforcommunityparticipationandtraining in A,0&M at villagelevel. For example,in two ofthe visited villages therewere no water committeesand thereseemedto exist amisunderstandingbetweenthecommunityand theNGO aboutthe purposeof a watercommittee.One of the NGOswas purchasingthe spareparts to the systemfor thecommunity. Both of these measures affect thesustainabilitynegatively.It is importantthat thecommunityis responsiblefor all theactivitiesof A,O&M from the verybeginningoftheproject. The role oftheNGOshouldbe to assistnot to DO!

Secondly,a high numberof watercommitteeshave not participatedin the trainingcourseson A,O&M and arethereforenotpreparedsufficiently. Themethodologyof thecourse is appropriate since it uses a participatory methodology and Aymará and Quechua.However, there areproblems with the course objective and theparticipants.Theobjectiveis not clear and thereis a lackofconsistency betweentheobjectiveand theparticipants.Someof theparticipantsareneitheroperatorsnorcommitteemembers,and theMissiontherefore questions thevalueof training them.

In most of thevillages thecommitteeis chargingamonthly tariff of B 0,50 per family.This tariff waschargedboth in UNICEF andYacupajsupportedprojectsandis not basedon an analysisof thecostof A,0&M. According to thecalculationsmadein section3.2.,thetariff doesnot coverthecosts.Thecommunitiesseemto makeadditionalcollectionsof contributionswhenneeded.The decisionto collecta highermonthly tariff or makeadditionalcollectionsshouldnaturallybe madeby thecommunity,but it is importantthattheWatsansubprojectinforms thewholecommunityof thecostand discussthemostconvenientway to coverit.

From the aboveit can be concludedthat UNICEF needsto revise its policies andmethodologiesfor training in administration,operationand maintenanceand that allNGOs mustbe trainedin thepolicies.More and betterpreparationmustbe givento thecommunitymembers(both womenandmen)and the watercommittees.All operatorsshould be given reinforcementtraining at a specialcourse.Moreover,for reasonsofsustainability the water committees that have not received training sofar,mustbe giventhat assoonaspossible.Furtherrecommendationsaregiven in chapter4.

3.9.2. SANITATION UN1TSAND SPORTAND SANITATION UNITS

Like any otherinstallationat village level, thesanitationunits dependon thecommunityparticipation for its sustainabiity.TheUNICEFpolicy is that O,A&M shouldbe donebythecommunitythemselves.For schoolsanitationunits theteachershouldalsoparticipate.

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Final report

TheYacupajprojecthad alsoconstructedsolarheatedcommunityshowers.The numbersconstructedwerefew and theabsolutemajorityarenotworkinganymore.Accordingtoinformationonly oneor two units arestill functioning.

TheUNICEFconstructedunits, visited during thefield study,werequite new. In somevisited villages the teacheraloneor togetherwith theschoolcommittee’9had takenresponsibilityfor theO,A&M of theunits constructedin conjunctionwith theschool.Aswasalso mentionedin section3.4., someunits hadsevereproblemswith operationi.e. r

the usageof them, and many visited units had alreadyor will faceproblemswithmaintenance.This is valid for boththeshowersandthepourflush toilets.

Thefrequencyof showers,i.e. usage,perchild seemsto vary considerablyfrom schoolto school.Units that aremanagedby theschool teacherandwhereboth theteacherandthe parentswant the children to shower,are probablyusedregularly by the schoolchildren.In otherschools,wherethe teacherdoesnotoblige thechildrento shower,it isdoubtfulhow oftentheshowersareused.

In most of the visited villages, theshowersarenot regularly usedby the grown ups.Some community members use them but faF from the majority. Especiallywomenseemed to be hesitant and many said: “we do not know how to use them”. Naturally theWatsan project can not be expected to hange the behaviourof adults totally, but theMission believes that the lack of promotion and training in hygiene and the usage of theshowers, haveled to lessulilisation thancouldhavebeenpossible.

Theproblemsof correctivemaintenancethatwereobservedandcanbe expectedto existin the future,aremostlikely dueto:

— an unnecessarycomplicatedandsensitivetechnology,— thatno specialtraininghasbeenprovidedon how to maintaintheunits,— lack of communityfunds to pay for repairs,which probablyis a resultof too

low communityinvolvementandcontributionin theconstructionof theseunits.

The overall conclusionis that UNICEF needsto accompanythe constructionof thesanitationunitswith a processof communityinvolvementand training.Moreover,it isabsolutelynecessarythat both the teacherand the community committeeare totallycommitted to the unit and hasdiscussedin detail theutilisationandthemaintenanceof it.

3.10. Sustainability

The sustainability of the project will be analysed from the following two perspectives:

— thesustainabilityoftheactivities of theprogramme,i.e. whethertheNGOscancontinuemakinginvestmentsin basicwaterand sanitationservicesaftertheUNICEF fundinghasended,

— the sustainability of the investmentsas such, i.e. whether the systemsconstructedby the programme aresustainable.

i9 Schoolcommitteeshaverepresentativesfrom the communityand have the responsibilityand theauthontyfor the functioningof the school.The commitLeesshouldexistateveryschool.

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Final report

Dueto problemswith lackof humanand/orfinancialresources,theactivities of manydevelopmentprojectsarenotsustainable.Thesituationof theWatsansubprojectis betterthanmanyotherprojects.The activitiesof theNGOsworking in theWatsansubprojectaresustainable considering human resourcesbutnotwhentaking thefinancialresourcesinto account.Theactivitiesof theNGOsarealmosttotally financedby UNICEF, and atthis pointit is not possibleto determineif theywill be ableto achievefunding from othersources when the UNICEF support is terminated.If the watsansector in Boliviacontinues to receive the same magnitude of funding as today, it is possible that theactivities of the NGOseven will be financially sustainable. I.e. that the NGOswould beableto receivefundingfrom anationalentitity like SW or PROSABAR.

The sustainabilityof the investmentsmadeby the Watsansub-projecthave beencommentedpreviouslyin thereport.Theoverallconclusionsarethat:

— the water units are likely to be sustainablefor quite some time, butimprovements are needed in training for A,0&M and in tariff collection. It isimpossible to foresee the number of years that a system will be sustainable sincethis dependson whatactuallyhappensin thevillage andwhetherthesystemwillbe affectedby accidentslike for example“a vehicle” breakingthe tubes.Thereasonswhy theMissionconsidersthat thewatersystemsaresustainablearefirstly, the technology usedby UNICEF, which is easily managedat thecommunity level and has a low cost of replacement,and secondly, theconsiderable importance given by the communities to the water systems,

— thesanitationunitsconstructedwill haveproblemswith theirsustainabiity,

— when the toilets, especially the V.I.P. model, areaccepted and used properly bythe community they have a good chance to be sustainable since they areconstructed with mostly local materialsandcommunitylabour.

3. 1 1. Project management

The issue of project management was not originally includedin thetermsof referenceforthe Mission, but SidahasaskedtheConsultantsto commenton themethodfor projectmanagementbasedon an analysisof projectdocuments.

Such an analysisshowsthat theWatsansubprojectduring 1995 and 1996hasusedanLFA-like systemfor projectactivity plansandreports.Theannualaction plan for 1995showsthenumberof systemsplannedandtheexpectedcostsandthesocalled“informede avance’ (theresultreport) for 1995showsthenumberof systemsbuilt and therealcost. TheMissionconsidersthat theinformationis detailedenoughto facilitatea donor’smonitoringof projectresults.

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Final report

4. THE WATSAN COMPONENT IN THE UNICEF PROANDESPROGRAM — RECOMMENDATIONS

Dueto thetechnicalcharacterof theMission, severalof the recommendationsgiveninthis chapter arehighly technical.All therecommendationsaregiven to SidabutseveralofthemconcernUNICEF andcanthereforebe usedin Sida’sdialoguewith PROANDES.

I

4.1. Continued Swedish support

Although, this report presentsseveralshortcomingsof the PROANDES Watsansubproject,theoverall conclusionis that theprogrammehassucceededto constructmanywatersystemsin oneof themostneededareasin Bolivia wherefew otherorganisationsareworkingwith basicwaterandsanitation.

TheprovinceswherePROANDESis activearethepoorestin theBolivia andthehealthof thepopulationin general,and of childreniii particular,is bad. Investmentsin water,sanitationandhygieneareimportantto decreasetheinfant andchild mortality ratesandimprovethe health and living conditionsof the population in the area.UNICEF hasdevelopedthe NGOs’ capacityto implementWatsanprojects,and togetherthey havecreated an efficient system to construct water projects in thearea.The Missionbelievesthat this “delivery system” could be adapted to implement water, sanitationandhygieneprojects i.e. real integrated projects to improve the health of the rural populationin thearea.

It is therefore recommended that Sida continues to finance the Watsan subproject after1997 providing that:

— UNICEFredirects the assistance according to the recommendationsgiven in thisreport,

— UNICEF continues to try to obtain funds from PROSABARand SIF for theNGOsandthe municipalities.This is necessaryto decreasethedependenceonSida funds,

— UNICEF continues andstrengthenes its dialogue with DINASBA. The purposeis thatUNICEF sharesits experiences andsimultaneouslystaysinformedaboutthedevelopmentof thesector.

It is also recommended that Sida monitors the development of the Watsansubproject andcontinues the policy dialogue with UNICEF. Themonitoring of the reorientation of theprogrammeshouldbedoneannuallyand theresultshouldbediscussedat the annualreviewsof PROANDES.Moreover,afteroneanda half yearsa small study shouldbemadeof thereorientationof theWatsansubproject.SectorspecialistsshouldsupportSidain themonitoringofand policy dialogue with UNICEF.

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Final report

4.2. Hygiene promotion

The mostimportantrecommendationis that theProjectchangesits focus.Watersupply,sanitation andhygiene promotion must be integrated activities. All areequallyimportantandneitherwill beeffectivewithouttheother.

Watsanshoulddevelopastrategyfor hygienepromotionat villagelevel. Contentsofthestrategywere presentedin section3.7., and in the following its main elementsaresummarised.

— Hygiene promotion should be the starting point for any water supply and sanitationinterventionin a community. Hygiene promotion should then runsimultaneously with theconstruction activities and continue until the desired result, a change of hygienebehaviour, has been accomplished.

— In each community thelocal changeagent(s)mustbe trained,retrained,upgradedandsupported over several years. This could be donethroughNGO-supportednetworksofchange agents.

— School teachers should giveextratraining in healthand hygienefor schoolchildrenduring the implementation of the project in the village.

— Hygiene promotion, like all other components,should utilise participatorymethodologies.A limited numberof specifichygienehabitsshouldbe promoted.

— If possible the hygiene promotion could be co-ordinatedwith theothersubprojectsofPROANDES,for examplewith thehealthsubproject.However,thehygienecomponentshould only be co-ordinatedif the result will be goodqualityhygienepromotionfor everyvillage that benefit from water. The costof the activities should also be considered.Naturally a co-ordination can be difficult if thesubprojectsarenot active in thesamevillages simultaneouslyand if the projectshavedifferent focus.The advantagesanddisadvantagesofco-ordinationshouldbe evaluatedby theWatsansub-project.

4.3. Sanitation

Section3.6. containeddetailedrecommendationsfor sanitationandasummaryof thesearegivenhere.

The Projectneedsto reviseits emphasisand strategies,and theconceptof sanitationshouldbe extendedfrom thecurrentnarrowoneof “providing toilets” to thewideroneof“creatingandmaintaininga healthyenvironment”.

Toilet prototypesadaptedto the specialcircumstancesin theProjectareaneedsto bedeveloped. UNICEF should in co-operation with DINASBAundertake a study of locallyappropriate toilet models (with and without reuse) for the Altiplano environment. Theresults should be widely disseminatedthrougha numberof workshops.(For detailedproposal, see Appendix 5.)

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Final report

— The possibility of usinghumanurineand Jepathogenizedhumanfaecesasfertiliserandsoil conditionershouldbe advocated.

— Eachhouseholdshould haveits own toilet but theseunitscannotbe deliveredto thepeople— they must comeaboutthrough Iheir own efforts as a resultof hygienepromotion.

— Schoolfacilities should bebasedon well-built, durablepit toilets and mustincludehandwashingarrangements.

4.4. Equality between men and women

In orderto furtherpromotetheequalitybetweenmenandwomen,it is recommendedthattheWatsansubprojectdevelopsa moredetailedstrategyand that this strategy is appliedby all NGOs.

Theprojectstrategyshouldincludethefollowing components:

— Bothwomenandmenshouldparticipatein meetingsconcerningtheproject.

— A special training sessionshould be held in the community.The training shouldinclude an analysisof women’sand men’s social roles and contribution to the dailywork. Moreover,thereasonswhy womenought to be representedin thewatercommitteeshould be discussedin thesession.The training should beconductedbeforethe watercommitteeis selected.

— Womenwho aremembersof watercommitteesshouldalwaysparticipatein courseson administration,operationand maintenanceorganisedby the project. However,it isimportantthat women’sparticipationdo nol excludemen from training. Therefore,committeeswith femalemembersshouldbe allowedto sendonemorepersonto trainingthanall malecommittees.

— The Watsansubprojectshould co-ordinateits work with the Yahui Yapina atcommunitylevel. Specialmeetingsfor womencouldbe organisedthroughYahui Yapinain which womenareencouragedto participate~Lctivelyin thewatsanactivities.

— In communitieswherethe majority of the menmigratepartsof year,at leastonewomanshouldbe trainedasoperator.

In additionto therecommendationsgivenabove,UNICEF should train all NGO staffinvolved in theWatsansubprojectin genderawarenessand promotionof equality.Thetraining shouldalsoinclude explanationof the improvedstrategyto promoteequalitywithin theproject.

An assessmentshould be madeafter one yearof implementationof the strategy.Theassessmentshould analysehow thedifferentNGOshaveimplementedthestrategyandwhat effectsit hashadon womenandmenin thecommunities.Theevaluationshouldofcourserecommendfurtherimprovementsto be undertakenby theproject.

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Final report

4.5. Systems for calculation of costs and cost recovery

It is recommendedthat the Watsansubprojectdevelopsa simple systemfor costcalculationofsanitationinterventions.Thesystemshould provideinformationabout:

— investmentcostspaidby UNICEFandtheNGOspercommunity,— investmentcostperbeneficiary.

A simplesystemwould only requirea costcalculationform thatincludescostof labourand materialand numberof beneficiaries.The form could be filled out by the NGOundertakingthe work in the communityand can also be the basisfor paymentof theNGO.Thesystemfor costcalculationshouldbe integratedwith thesystemto monitoranddocumentprojectresults.

In relation to cost recovery,it is recommendedthat theWatsansubprojectwithin twoyearsstudiesthe economiclevel of the beneficiariesand the costrecoverypolicy ofUNICEFand PROSABARprojects.The advantagesand disadvantagesof the differentcostrecoverystrategiesaswell asappropnatenessto havedifferent strategiesshouldbecarefullyassessed.

4.6. Administration, operation and maintenance of installed systems

Thewholepolicy and themethodologiesusedfor training of A,O&M needsto be revisedanddeveloped.All NGOs shouldbetrainedin thenewpolicy.

It is recommendedthat UNICEF undertakesa study in 10 villagesof how A,O&M isworking,and basedon theresultsof suchstudy,developsthecontentsof thetraining forA,O&M.

The Mission would recommend that the following strategies are considered in the newpolicy:

— During at least two sessions, the A,O&Mof the system should be discussed with thecommunity members (men and women). The sessions should be conducted in the locallanguage and utiuise participatory techniques.Thefocusshouldbe theneedfor A andM,how the water will be used, how the community can maintain its system and the role ofthe water committee.

— The operators should continue to participate in the construction of the system andshould receive a special course, where only operators participate.

— Water committee members should be trainedin the village andsome representatives ata special course. The water committee should be responsible for the replacement of theoperator.

— The objectives and contents of the courses for the committees andthe operators shouldbe modifiedbasedon thetraining needsassessmentthat should form partof thestudymentioned above.

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Final rep~rt

— Thework of thewatercommitteeshouldbe monitoredand theyshould be visited bytheNGO.

Moreover, training should be given to the water committees that have not received the fullpreparationi.e. thecourseson A,O&M.

4.7. The re-orientation of the programrrie.

The recommendationsgiven in this chapterimply a re-orientationof the Watsansubproject from the construction of water sysi ems to an integrated water, hygiene andsanitationproject. Naturally, thesechangeswill requiretime andhumanresourcesandwill meanthatfewerwatersystemscan be ccnstructedper year,and that thecostpersystem will increase.

There-orientationcanbe donein differentsequencesandtheMission recommendsthefollowing:

To startassoonaspossible

— Initiatetheshortstudyon toilet models.

— Startthe development of the new strategy and work methodology at village levelfor the project. This will include the development of hygiene promotion strategy,theaggregationof thestrategiesfor equality, thesanitationpromotionand thetrainingof A, 0 &M. TheNGOsneed to be trainedin the newstrategyand toadaptits humanresourcesto thenewrequirements.

— Startthetrainingof the 199 committee~ that have not participatedin the courses.The training could be done on village level or in the training centre.

— Startthestudyof A,O&M whichwill servefor reorientationof thepreparation.

To begin within one year

— Startto implementthenewly developedhygieneandsanitationcomponentsinthecommunitieswherewatersystemshavebeenconstructed.

— All new villages that are included in Ihe Watsan subproject should receive anintegratedproject.

— DevelopthenewstraLegyfor training in A,O&M.

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Final report

5. THE UNDP-WORLD BANK PROGRAMME

TheUNDP-World BankWaterandSanitationProgrammehasfive regionalprogrammes.Theoperationsin theAndeanregionwasinitiated in 1991 whentheGovernmentof theNetherlands asked the Program to implement the Yacupaj project in Bolivia.

In the fiscal year 1993/94, the operationsin Bolivia wasexpandedto also includeEcuadorandPeru,and socalledAndeanNetworkfor Waterand Sanitationwascreated.According to theAnnualReportof theWaterand SanitationProgramme1993/94,“theAndeanNetworkwill actasa catalystover the nexttwo anda half yearsin aneffort todevelopa learningapproachto theprovisionof servicesto thepoorin thesub-region.Thelessonsareto be disseminatedamongdonoragenciesandnationalpublic andprivatesectorinstitutions,both in-countryandat the regionallevel.”

Thestrategywasto initially focusits activitieson developingmonitoringandevaluationprocesseswith governmentsand national institutionslinked to World Bank fundedinvestments.The Network concentratedits efforts on the EcuadorHealth Project(FASBASE)andtheBolivia RuralWaterandSanitationProject(PROSABAR).

In February1994,an agreementfor funding was signedwith Sida, accordingto whichSwedenwould financeadministrativeandoperationalexpensesfor theoperationsof theProgramme in Laos, South Asia and the Andean region. A total of US$ 545,000wastobeprovidedto theAndeanoperationsover a threeyearperiod.

The letter of agreement between Sida and the Programme does not include any detailedproject description, nor is there anyspecialprojectdocumentthat specifiesobjectives,expected output and planned activities of the Andean operation financed by Sida20.According to the agreement the objectives were to:

— create a Network of Andean countries and donors interested in the Region,— build over time, a mechanism for systematic learning for project successes and

failures in the Andean region,— disseminate “best practices” for eventual incorporation into project design and

implementation.

In 1996, it was decided to strengthen the activities of the Programme in South America.The Network was transformed into a Regional Water and Sanitation Group (RWSG-AN)similar to the ones existing in the other regions where theProgramme is active. A detailedcountry workplan for the Andean Region was developed which covers activities inBolivia, Peru and Ecuador . Two new staff members were recruited.

20 The Country Work Plans and theAnnual Reportsproducedby the Programme contain informationaboutobjectivesandplansbut only on a yearlybasis.Moreover,it is difficult for an individual donortomonitor theprogressbasedon thesereportssincethereis no comparisonbetweenplannedandachievedoutput.

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Final rep9rt

Thedevelopmentof the detailedworkplanfonnspartof thenewsystemfor monitoringand evaluationof the Programme’sactivitie~.This systemis a result of the globalevaluation of the Programme conducted in 199:521.

5.1. Programme result and relevance

Thetableshowstheactivitiesundertakenby RWSG-ANin thedifferentcountriesandinthe region since its initiation:

Year Bolivia Other countries Regional FinancingIn US $

Numberof staff

i99i * implementation ofYacupaj

UNDP and theNetherlands

2 persons

1992* implementation ofYacupaj* participation in the

study National System forCapacity Building in theWater and Sanitationsector

UNDP and theNetherlands

2 personsand 2consultantsfor thestudy

1993* implementation ofYacupaj* technical assistance forwatsan pilot project inmarginal urban areas inCochabamba and SantaCruz

UNDP and theNetherlands

1994

1995

* preparation of WB

finaiicedPROSABAR

* documentation of the

Yacupaj project

* preparation of documentWater and Sanitation in

Marginal Urban Areas

* technical assistance toPROSABAR developmentof financial policy and themonitoring system.* Documentation of the

Yacupaj project — videoand sustainability study.* One seminar todisseminate Yacupajexperiencesto the sector

Ecuador technicalassistance toFASBASE, a WorldBank financed ruralw at s an ~ i lotprogramme Design ofthe watsan componentm FASBASE

Ecuador teclnicalassistance toFASBASE

* personnel fromFASBASE madestudy visit toYacupaj project

Boliviai UNDP59,816 forYacupaj 2UNDP forpreparation ofPROSABAR3 Sweden19,688 forco-ordinatorEcuadorUNDPi42,438 forTA toFASBASE

Bolivia andregional.~ Sweden:144,9202 UNDP:126,737for TA toPROSABAR.EcuadorUNDP:138,800 forTA toFASBASE

Bolivia: 1persons 2consultantsEcuador 1personandconsultants

Bolivia ico-ordinatorfor 8months, and

iconsultant.Ecuador: 1personandconsultants

21 An Evaluationof theUNDP - World BankWaterandSanitationProgram— Reportofan IndependentTeam,1996.

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Final report

Table 5: RWSG-ANactivities 1991 to 1996

The table shows that RWSG-ANhas had four different donors since its initiation: theGovernmentof Netherlands,the UNDP, the World Bank and Sweden.With theexception of the small contribution from the World Bank, all donors but Sweden haveearmarked their funds, i.e. the funds has been destined for certain activities such astechnicalassistanceto aspecificproject

As canbe seen in the table, RWSG-ANseemsto havehadtwo phases:1991 to 1995and1996 and onwards. Prior to 1996, RWSG-AN concentratedits efforts to theimplementation and technical assistance to three projects: Yacupaj, PROSABARandFASBASE. TheGroupwas working predominatelyin Bolivia and to someextent inEcuador and had no activities in Peruandonly oneatthe regionallevel.

In 1996, RWSG-ANincreasedits activitiesbothin eachcountryandat the regionallevel.Peruwasincludedfor the first timeand efforts to co-ordinateexperiencesbetweenthecountrieswere initiated.

5.1.1. PROGRESSANDFULFILMENT OF OBJECTIVES

Theanalysisof theprogressofRWSG-ANincluding thefulfilment of objectivesshouldconsiderboth theobjectivesstatedin letterof agreementwith Sidaandtheobjectivesofthe Programme itself. The objectives and strategies of the Programme is expressed in theProgrammeStrategyfor the1990’s:

— supportingsustainableinvestmentsi.e. largeprojects,— capacitybuilding i.e. improving therulesgoverningthesectorand enhancing

performanceoforganisationsandhumanresourcesin thesector,— disseminationof lessonsandknowledge,

As was concluded in the global evaluation of the Program, it is very difficult to measurethe success of the program against the threeobjectives mentioned above. In order tomeasurethe result of the Program, the evaluationteamdefinedfive statementsthat definethedesiredsituationattheend oftheprojectTheseendsituationswerethat:

1996(9

months)

* technical assistance toPROSABAR* support to the sector i

national seminar oninstitutional development* proposal for marginalurbanareas

Ecuador* TA to FASBASE* preparation of

national rural watsanprogramme.* meeting with the newGovernment.* discussions for aproject in marginalurban areas.

* developmentof aregionalprogramme* contacts withdifferent actors inthe three countries.* project proposalfor a marginalurban pilot projecton regional levei tothe WB.

Bolivia andregional. 2full timeprofessionaI staff and 3consultants

Bolivia andrcgional~(6 months)i Sweden127,5042 UNDP TAforPROSABAR3 WB 4,200.

E~nL

Ecuador 1person andconsultants

* i seminar to

disseminate theYacupaj experiences.* discussions for apilot programme inruralareas

Ecuador~UNDP TA forFASBASE10,390

39

Final rep0rt

— the national and local capacity at all levels would have been strengthened,— sectorpoliciesandstrategieswould hive beenshiftedawayfrom government-

driven top down approachesto decentralisedand demand-drivenbottom-upapproaches,

— qualitative improvementswould have been made in the design andimplementationof largescale,sustainableinvestmentprojects,

— developmentandimplementationofa systematiclearningprocessfor testingofnew techniques,

— sectorco-ordinationwould haveimproved,

RWSG-AN has, throughits work with Yacupaj and PROSABAR, had an importantimpacton the rural waterand sanitationsectorin Bolivia. The MissionbelievesthattheGroup through its implementationand documentationof the Yacupaj experienceinfluencedpositively in thecreationof PROSABAR.Not only hasRWSG-ANassistedthe World Bank and the Government of Bolivia with the design of PROSABARbut thebare existence of the Group and its Yacupaje~periencehasprobablyinfluencedin thedecisionto financealargeintegratedruralwater andsanitationprogramme.

Dueto themagnitudeof PROSABARandits connectionwith theco-ordinatingagencyofthewaterandsanitationsector,DINASBA, RWSG-AN’swork will influencethewholesector.

Severalof the programmesinitiatives, suchas Yacupaj and the National Study forCapacityBuilding in theWaterandSanitationsector,haveresultedin furtherprojectsorstrengthening of sector, but there are also examples of where RWSG-ANhas undertakenactivities thatappearisolated.Examplesof thesearethetechnicalassistanceprovidedtomarginal urban areasin Cochabamba and Santa Cruz in 1993 which, up to now, havehad little influence in the sector.

The work in Ecuador has not advanced as much as it has in Bolivia. The work hasmainlyconsisted in the technical assistance to the implementation in FASBASE. Thedocumentationand disseminationof experienceshavenot startedand theexperienceshavenot beentranslatedinto a largeinvestmentproject.

As wasmentionedbefore,up to 1996, therehad beenno work in Peruand hardly nowork at the regional level. Recently,RWSG-ANhasbegun to createa network andstartedmoreactivities in eachcountry.

Theconclusionis that RWSG-ANhasbeenstccessfulin Bolivia but hasnot achievedmuchin theothercountriesorattheregionalle~el.

In Bolivia theprojecthasachievedtheobjectivesexpressedin the letterof agreementwithSida andtheobjectivesof theProgramme.Thework with Yacupaj— PROSABARhasto some extent influenced positively all the six desired situations at the end of theProgramme,i.e. it hasincreasedthecapacityat differentlevels,the nationalpolicy hasbeen altered to base itself on a more demand •driven, bottom-up approach, the socialaspect and training hasbeen included in large ~caleinvestments for the sector, a systemfor systematic learning is beingintroducedandthesectorco-ordinationhasincreased.

40

Final report

However, RWSG-ANhasnotcompletelyachievedtheobjectivesexpressedin the letterof agreementwith Sweden.Therehasbeenalmostno interchangeof experiencebetweenthecountriesand no networkexists. Whatis worrying is that RWSG-AN up to 1996,seemsto havedonevery little at the regionallevel. Moreover,up to 1996,it is difficult todetectthelong-termobjectivesand strategiesfor how the regionalco-operationshouldbeestablished.Of course,it canbe arguedthat the strategywas to gain experiencewithPROSABARand to disseminate it to the other countries. This is an interesting strategybut theMission believesthattheGroup couldhadachievedmuchmorein themeantime,like for exampleorganisedseminarsto exchangeexperiencesbetweenthecountries.

5.1.2. RELEVANCE

RWSG-AN’s work in Bolivia has been relevantboth for the sector and for thebeneficiaries.Yacupajhelpedthe targetgroupto solvetheirproblemswith waterandsanitation,andPROSABARis an opportunityto co-ordinateandregulatethesector.

TheMissioncannot judgethe relevanceof thework in Ecuadorsincethecountrywasnot visited.

5.2. Influence on national policies and other projects and institutionaldevelopment

Theextentto which RWSG-ANhasinfluencednationalpoliciesandotherprojectsin thesectoraswell asits work with institutional developmenthavebeenpartiallycommentedon in section5.1.. Below, theconclusionsarefurtherdeveloped.

5.2.1. NATIONAL POLICY AND INSTITUTIONAL DEVELOPMENT

RWSG-AN hashad an importantinfluence on the nationalrural watsanpolicies inBolivia. TheGrouphas throughdifferentactivities suchasits work with YacupajandPROSABARand the participation in thestudy“National Systemfor CapacityBuilding intheWaterandSanitationSector” contributedto thedevelopmentofnationalpoliciesin therural area.All theseactivitieshavealsoledto institutionaldevelopmentof thesector.

The Grouphas,with theexceptionof DINASBA and theinstitutionsworking with theYacupajproject,not interactedmuchwith otherprogramsin the sector.Naturally theGrouphasparticipatedin sectormeetings,butoutsidethese,therehasbeenlittle contactwith otherorganisations.TheMissionnotedthatmostactorsin thesectordo not haveanaccurateideaof RWSG-AN.TheGroupis oftenreferredto astheWorld BankorastheYacupajproject andnoneof the interviewedorganisations(i.e. donors,NGOsor UN)knew themissionofRWSG-AN.

RWSG-AN has,so far, not had much influenceon sectorpolicies and institutionaldevelopmentin Peruand Ecuador.The main reasonsarethatfew activitieshavebeenimplementedand that, its work in EcuadorthroughFASBASE is in an early stage.Asmentionedpreviously, RWSG-AN has increasedits activities during 1996 whichprobablewill resultin influenceon sectorpoliciesand institutionaldevelopmentin thefuture.

41

Final rep,rt

5.2.2. INFLUENCEONOTHERPROJECTS

RWSG-AN hashad a largeinfluence on P}~OSABAR. The influenceis due to theexperiencesof Yacupajand the technicalassstancegiven by RWSG-AN both in thedesignand theimplementationof theprogramme.However,it is importantto highlightthat PROSABARhasusedexperiencesfroni variousprojectsin Bolivia. Although,Yacupajhascontributedsubstantiallyto PROSABAR, experiencesfrom CARE Boliviaand UNICEFhavealso beenused.

RWSG-ANand Yacupajhasso far not influencedotherprojectsin Bolivia. The onlyorganisationsthatareusingexperiencesfrom theprojectaretheNGOsthat implementedit. It is probablethatthestrategyusedfor the implementationof Yacupaji.e. to testthepoliciesfirst, documentand thandisseminatetEie experiences,hasled to the low impacton otherprojects.If otherprojectshadbeeninvolved from thebeginningofYacupaj,theresultswould havebeenmoreeasilydisseminated.

During 1996, RWSG-AN hasstartedto disseminatethe experiencesof Yacupaj—

PROSABARin PeruandEcuador.Themain focusof thedisseminationhasbeenon howa pilot project can serveas the basis to imfrove the sectorand to develop a largeinvestmentprogramme.

5.3. Administrative costs

An estimationof theadministrativecostsof theProgrammefor thefiscalyear 1995/96ispresentedin the table:

Table6: Estimationof RWSG-ANadministrativecosts

Thecalculationincludesonly administrationcostsfor theLatin Americanoffices,i.e. theoffice in Washington is not included. The total administrative cost for the period isestimatedto be US $ 100,706.Sida paysapproximately68%of thetotaladministrationcostandtherest is financedby theUNDP.

Theadministrationcostaccountsfor 27% ofthetotal projectcost.An administrationcostof 27%is quite high andreflects thecurrentphaseof developmentof RWSG-AN. As

Item Cost paid by Cost paid by Total cost~iida UNDP US $

Administration of the Programme 29 423 29 423Secretariesandadministrationstaff II) 369 12 182 22 551Purchaseof office equipment ~ 704 4 704Office rent, electricityandothercosts 24 108 19 920 44 028TOTAL 6~604 32 102 100 706

Total budget for fiscalyear95/96 3~0000Administrationcost in relation to total budget 27%

42

Final report

mentionedbefore, theProjectis in themiddle of a “new start”. When an organisationstartsits activities, it requiresa largeradministrationto developwork plansand projectproposals.Theadministrationcostin relation to the total budgetshould andmust godownwhenRWSG-ANhassettledat thenewlevel of activities.

For example,if theprojectproposalfor waterandsanitationin marginalurbanareasisapproved,theadministrationcostof theProgrammewould decrease.Estimatingthatthemarginalurbanwaterandsanitationprojecthasthefollowing costdata:

Administrationcostof theproject: (10%oftotalbudget) US $ 150,000Totalprojectbudget: US $ 1,500,000

Whenincluding the proposal,thetotal administrativecostswill be US $ 250,000andaccountfor 13%of thetotalbudget,which is amoreacceptablelevel.

5.4. Main conclusions and recommendations

Themainconclusionsaresummarisedbelow:

— RWSG-AN has been successful in Bolivia. Theworkhasbeenrelevantfor theneedsof both thetargetpopulationandthesector.

— TheGrouphasnot achievedtheobjectiveof regionalinterchangeofexperiencesandthe creationof the AndeanNetwork, which was the basisfor the co-operationwithSweden.

— Since1996RWSG-ANhasdefineda strategyfor how to work with theall countriesand achieveits objectives.Thenewplansareinterestingand theMissionbelievesthatthesewill achievea co-ordinationandinterchangeof experiencebetweenthecountries.Moreover,with theplannedlevel of staffandactivities,RWSG-ANhasthepotentialtoinfluencepositively thedevelopmentofthewatsansectorsin theAndeanregion.

— TheUNDP-World Bank Waterand SanitationProgrammehasauniquepositionin thewaterandsanitationsectorwhich gives it thepossibility to contributeto thesolving ofseveralof thecommonproblemsin thewatsansectorsofdifferentcountriessuchas: lackof co-ordinationamongdonors,lackof nationalpoliciesand norms,a concentrationondelivery of infrastructure,weaknationalinstitutions,no documentationanddisseminationof experiencesand lackof investmentcapital.However,thesuccessof theProgrammewill dependon theability ofthestaffatthecountryoffices. To financeawell functioningRegionalGroupof theProgrammeis astrategicinvestmentfor Sweden.

— Sidaneedsto follow up theresultsof theUNDP-World BankWater andSanitationProgrammemorecloselythanpreviouslydone.A decisionto financeaprojectshouldbebasedon adocumentthat describestheobjectives,plannedactivitiesandbudgets.ThecurrentagreementbetweenSidaandtheWorld Bank is too vagueanddoesnotfollow thenormalSidarequirements.

43

Final rep7r1

The main recommendations are that:

— Swedencontinuesto financeRWSG-AN, but that otherdonorsalso shouldcontribute.For any networkit is importantthatvariousdonorscontributesincethis facilitatestheconsensusbuilding in thesectorandtherebytheachievementof the Programme’s objectives22.

— The decision to continue Swedish fma~cingshouldbe basedon adocumentthatclearlydescribesobjectives,plannedactivitiesandabudgetfor RWSG-AN.

— Sidamonitorstheresultsof RWSG-A~.

— RWSG-ANinformstheotherorganisationsin thesectoraboutits existenceandits objectives.

— RWSG-ANalwaysappliesa consensusbuilding strategyi.e. tries to involve asmanyorganisationsaspossiblein its differentactivities.In orderto achievetheProgramme’sobjectiveof “a learningprocessin thesector”,all activitiesshouldbe basedon previousexperiencesof different organisationsand an efficientcommunicationwith theactors.This processshouldstartfrom thebeginningofanyendeavour.

22 According to information received from RWSG-ANduring thecompilationof the final report, the

Governmentsof SwitzerlandandtheNetherlands havealreadyconfirmedtheir financial supportto RWSG-

AN The solicitedcontributionfrom Swedenis approximately25%of theregionalbudget.

44

Final report

6. THE PROJECT PROPOSAL FOR MARGINAL URBAN AREAS

This chapterdescribesand analysetheDINASBA - RWSG-AN projectproposalforwaterandsanitationin marginalurbanareas.

6.1. Description of the project proposal

In May 1996,DINASBA andRWSG-ANsubmittedadraftprojectproposalto Sida.Theproposalregardsapilot projectfor marginalurbanareas.The long termobjectiveis to“improve the living conditionsof urbanpoorthroughsustainable,improvedaccesstowaterandsanitationservices”.Theexpectedsituationattheendoftheprojectis:

— to haveformulatedsectorpoliciesandstrengthenedtheinstitutionsi.e. nationalagenciesandmunicipalities,

— to havetestedanddevelopedinstitutionalarrangements,financingmechanismsand technologyoptionsfor marginalurbanareas,

— to haveprovidedlow incomepopulationliving in marginalizedurbanareaswithwater and sanitation,

— to havedocumentedanddisseminatedtheexperiences.

The underlying strategy of RWSG-ANis to copy the Yacupaj — PROSABARprocessinmarginalurbanareas.TheGrouphasalreadydiscussedthepossibilitiesfor financing of alargewatsanprojectfor marginalurbancommunitieswith theWorld Bank,andaccordmgto the information given by the Group, the Bank is interestedto finance a largeinvestmentprojectutilising theexperiencesof theprojectproposal.

Thestrategyof the project will be basedon theprinciplesdeveloped23by the Nordicdonorcommunityand which wereendorsedat the 1992 InternationalConferenceonWaterandEnvironmentin Dublin. Whenappliedin theproject, thesebasicprincipleswillresultin ademanddrivenapproach(theprojectwill give thecommunitieswhattheywantand arewilling to pay for), to offer different technologyand financialoptionsand basetheprojecton partnershipsbetweenthepublic andprivatesectorandtheconsumers.The“Dublin” principleofwomen’scentralroleis not mentionin theproposal.

Theprojectbudgetis estimatedto US $ 1,500,000for athreeyearperiodand themainphasesof the projectare: an investigationto generatethebasisfor a pilot project, theimplementationofapilot projectandthedisseminationof theexperiences.

In June1996, RWSG-AN and DINASBA presenteda proposalto theGovernmentofBelgium whichpartly overlapsthedocumentsentto Sida.Theproposalto theBelgianscoversthe first activity to be undertakenin theproject,theinvestigation.

23 The principles are that (a) water andland resourcesshouldbe managedat thelowestappropriatelevel

(b) watershould be consideredas an economicgood, (c) freshwater is a finite andvulnerableresource,essentialto sustainlife developmentand the environment,and (d) women play a centralrole in theprovision,managementandsafeguardingof water.

45

Final report

6.2. Analysis of the project proposal arid technical recommendations

The project proposal canbe analysed using the conceptsof relevanceandviability.

Therelevancerefersto whethertheprojectis solving amajorproblemfor thetargetgroupand thesector.As wasdescribedin chapter2, the coverageof waterandsanitationismarginalurbanareasis low. Although thereareno studiesovertheconsumptionandcostof waterandsanitationin marginalurbanarea;in Bolivia, it can be assumedthat theseBolivians arepaying morefor waterthanthecitizensthatareconnectedto themunicipalwatersystems.According to information from El Alto, the population that are notconnectedto thewatersystempurchasewaterfrom vendors.Thecostis B 524 per200litres which translatesinto amonthly costof B 52 (for an estimatedfamily consumptionof 2100 litres or 70 litres perhouseholdper day). TheB 52 should be comparedto thecostof B 30 permonththat municipalwatercompanieschargefor 5000 litres andmore.A watersystemthat would providethe populationwith betterserviceto a lower costisrelevantto improvethe living conditionsof the poorin marginalurbanareas.A goodsolutionfor excretadisposal— maybe in combinationwith washingfacilitates— thatareconsideredappropriateby thepopulationwill ai;o improvetheir living conditions.

Consideringthe low coverageof sanitationand theproblemswith sewagesystems,theproject is probablyrelevantto improve the healthof the targetgroup. However,theproject proposaldoesnot mentionhygieneeducation— but the Mission takesit forgrantedthat the project will addressthe healthof the populationand that the healthhazardsand its causesin marginal urban communities will also covered in theinvestigationandthat hygieneeducation,if deemednecessaryto improvethehealth,isincludedin thepilot projects.

Theprojectis alsorelevantfor the needsof thesector.Thewatsanmarginalurbansectoris not co-ordinated,hasnot documentedand disseminatedtheexperienceof previousprojectsandlacksnormsandregulations.Furthermore,few actorsincluding both donorsand nationalorganisationsareworking with marginalurbanareas,andlittle funding isavailable.Theprojectwill addressseveralof theweaknessesof thesector,andthroughthe participationof DINASBA, nationalnorms and work methodologiesfor marginalurbanareaswill be issued.Theinterestof the Vv orid Bankto fundalargerprogrammeonthebasisof theresultsof theprojectfurtheradd~to therelevanceof theproject.

The preliminary proposal does not outline the (livision of roles between DINASBA andthe Group.Provided that DINASBA will participatein the projectco-ordination(asrecommendedbelow), the project will also assistto strengthenDINASBA as aninstitution.

Theprojectis alsorelevantfor theobjectiveof interchangeof experiencesbetweenthecountriesin theAndeanregion.Mostcountriesin Latin Americafacesevereproblemswith basicwaterand sanitationin marginalurbanareas,and theproblemstend to getaggravatedthroughtheprivatisationof thenationalwatercompanies.Privatecompaniesnormallyhaveno interestto attendthemarginalurbanareaswhereinvestmentcostsarehigh dueto theirlocationandpaymentcapacityis consideredto be lower.

24 Thevalueof theBoliviano is approximately1,30SE ( for I Boliviano.

46

Final report

Theviability of theprojectrefersto the likelihood that it will achieveits objectives.Theviability concernsthequestionwhethertheplannedactivitiesand resourceswill leadtothe achievementof the project’sobjectives.Due to that the proposalis still in draftversion, it is not possibleto assessthe viability in detail, and thereforeonly generalcommentswill begiven.

The project as suchis quite difficult. It involves the co-ordinationof the sector,athoroughanalysisof thesituationandtheimplementationof severalpilot projects.Thelevel ofdifficulty makesthequality ofprojectpersonnelextremelyimportantboth in theGroupand in DINASBA. Consideringthatthecurrentstaff at thetwo institutionshaveexperiencefrom Yacupajand PROSABARand with a similar schemein Africa, theMissionbelievesthattheyhavethecapacityto implementtheproject.However,Swedenshouldbecareful to assessany replacementofstaffat eitherof theorganisations.

Theprojectproposaldoesnot delineatetheresponsibilitiesof implementationbetweenDINASBA andRWSG-AN. TheMissionconsidersthat theactiveparticipationof bothinstitutions is crucial for the successof the project. DINASBA’s participation isnecessaryfor its institutionaldevelopment,the implementationof thedevelopednormsandtheco-ordinationof thesectoractors.TheGroupis neededfor technicalassistanceand to facilitatethe implementationof thepilot project.

Thework methoddescribedin thepreliminary projectproposalappearsto be appropriate,but the Mission would like to emphasisethe need for consensusbuilding and theutilisation of existingexperiences.Theprojectshouldinvolve thesectoractorsfrom thevery beginningof theproject,andtheir experiencesshouldbe usedfor the investigation.The Mission visited for examplean NGO working in El Alto that had interestingexperiencesfrom basicservicesin marginal urban areas. The involvement of watercompanies,ANESAPA andNGOsworking in thesectorfacilitate thedisseminationofthe project’s results.

Sincedisseminationof resultsis oneof theexpectedprojectoutputs,theprojectshouldhaveaspecificcommunicationstrategyincludingboth objectivesandactivities.

The proposal does not give details about sanitation, but considering that fewtechnologicaloptions exist in Bolivia, it is important that the project considersexperiencesfrom othercountriesandespeciallyecologicallybalancedtoilets.Thepour-flush toilet shouldnot be consideredastheobvioussolutionwithout investigationotheroptions.Moreover,given therelativescarcityof waterand thehigh costof waterbornsewage,the pilot project should carefully study the financial and environmentalimplicationsof dry versuswaterbornsanitationsolutions.

Theproposaldefinesthat20% of thecostswill be paidby thebeneficiaries.TheMissionrecommendsthat thepercentageof costrecoveryis definedin the investigationsinceothersexperiencesshowthat thelevel ofcostrecoverycouldbe higher.

It is importantthat thepilot projectsaretestedin differentmarginalurbanareasthat arerepresentativefor thewhole country.This will facilitatethe“going to scale” of thepilotproject, i.e. thereplicationin a largerprogram.

47

Final report

6.3. Recommendations for Swedish financing

Theoverall conclusionis that theproject, if implementedcorrectly,will be relevantandcan be the startingpoint to solve the watsanproblemsin marginal urban areas.TheMissionconsidersit to be astrategicinvestmeni.for Sweden— asmall investmentwith apossibility to largespin-offeffects.

It is recommendedthat Sidaconsidersthefinancingof theproject, but that otherdonorsalsoparticipate.Theparticipationof otherdonorsareimportantfor theacceptanceof theprojectresults.

Thefollowing stepsarerecommendedto furtherpreparetheSwedishsupport:

1. RWSG-AN and DINASBA should preparea detailedproposalconsideringtherecommendationsgiven in section6.2.. If the rirst phaseof theprojectwill be financedby Belgium, theprojectbudgetshouldbe reducedaccordingly.

2. Sidashouldassesstheproposalandtheassessmentshouldinclude an analysisof theactivities,thebudgetandtheprevailinginstitutionalcapacityof DINASBA andRWSG-AN. Sida shouldbecareful to detectany changesin thecapacityof the organisationscomparedto whenthis reviewwasmade.

3. Sidashouldmonitor the resultsof theproject annually. A mid-term assessmentisrecommendedandtheparticipationof sectorspecialistscouldbe useful.

4. To strengthenthecapacityof DINASBA, Sijacouldconsiderto earmarksomeof thefundsof the Civil ServiceReform Programmefor mediumlevel postsin DINASBA.Naturally, this shouldonly be done if Sidaconsidersthat DINASBA’s activitiesarevitalfor the developmentof thewatsansector.

48

Final report

ANNEX 1. TERMS OF REFERENCE

~~~Sida MEMO SidlIS

Departmentfor Natural Resources andthe 1996-08-27EnvironmentBengtJohansson

Dianenummer

Natur-1 996-0045

TERMS OF REFERENCE FOR A REVIEW OF SIDA SUPPORTED ACTIVITIES INTHE WATER AND SANITATION SECTOR IN BOLIVIA

1. BACKGROUND

Sida is supportingtwo diflerent programmesrelatedto waterandsanitation in Bolivia:

- The PROANDES programme (Programa Andino de ServiciosBasicos ContraIa Pobreza) through UNICEF: and

- The UNDP/WB Regional Andean Network for WaterandSanitation

The PROANDES programme was carried out in a first phasebetween 1989 and 1993 (June). A second phase, 1993-1 997 isunder implementation. The total budget for this phase is USD12,000,000. The agreed Sida-contribution for PROANDES July 1,1993 - June 30, 1994 was SEK 7,400,00 (approximately USD1,000,00) and for the period July 1, 1994 - June 30, 1995 SEK10,580,000 (approximately USD 1,463,777). These contributionshave been paid in full to UNICEF. The existing agreement is valid forthe period July 1, 1995- December 31, 1997 and includes anindicative contribution to PROAN DES of an amount of SEK23,400,000 (approximately USD 3,231 ,642). No disbursement hasbeen made within the new agreement. Totally, beginning in 1987and up to July 1996, Sidahas disbursed SEK 39,963,000 toPROANDES. It is estimated that approximately 25% of the Swedishcontribution has been allocated to the Water and Sanitationcomponent.

The programme is working in the poorest part of Bolivia and isreaching approximately 300 000 people. An evaluation of thePROANDES programme was made in April, 1994. The evaluationdid not assess the water and sanitation component in great details.Sida has in its discussions with UNICEF emphasised the importanceof giving the hygiene education, sanitation and costing higherpriority in the programme. This Review and its recommendations willform an important input in the discussion between Sida and UNICEF

c \USERWP\0VRIGT~TOR-B0L.WPD

Sida 2

on the content and design of a possible continued Sida support to

the programme.The World Bank is also supporting a rural water and sanitationproject, PROSABAR, at a national scale in Bolivia. The PROSABARproject seems to give higher priority to the implementation of thesanitation component of the programme. Both the PROANDES andPROSABAR project could gain from increased exchange ofexperiences in the future.

Sida decided in December 1993 to support the UNDPIWB RegionalAndean Network for Water and Sanitation in La Paz with an amountof SEK 4,500,000 during a two and a half year period. The objectiveof the project is to build a mechanism for systematic learning fromproject successes and failures in the Andean Region, fordissemination of “best practices” and for their eventual incorporationinto project design and implementation The Swedish funds arefinancing a Regional Coordinator, shcrt term consultancies andspecific training activities. The Sida contribution is channelledthrough an amendment to a Trust Fund Agreement, signed inFebruary, 1994. UNDP/WB is responsible for the monitoring andfinancial control of the project. Sida has not actively followed-up theproject and its results. It is envisaged that UNDPIWB will requestSida to prolong its support to the project. This Review and itsrecommendations will form an important input in Sida’s assessmentof such a request.

Sida is at present preparing a proposal on a country strategy for theSwedish bilateral cooperation with Bo~iviafor the period 1997 to1999. In the referred strategy support to activities in the water sectorwill be considered. One possible projEct to be funded by Sida is thedevelopment of methods (technical, economical and organisational)to improve the water supply and sanitation in the pen-urban areas inBolivia. A project proposal will be presented by the World Bank anda request for Swedish funding is expected shortly. This Review willprovide input in a possible preparation of future Swedish support tothe water and sanitation sector in Bolivia.

2. OBJECTIVE

The main objectives of the Review is to assess the progress andachievement of (i) the UNICEF/PROANDES water and sanitationcomponent especially regarding sanitation, hygiene education andeconomic aspects and (ii) the Swedish support to the UNDP/WBRegional Andean Network for Water and Sanitation in La Paz.Based on the above, recommendations shall be made on correctivemeasures to be taken during the remaining project period as well ascomments on the justification of continued support beyond thepresent project periods. The Review shall also comment on the

C~\USERWP\OVRIGT\TOR-BOL.WPD

Sida 3

If—

preparation of possible future Swedish support to the water sector in

Bolivia.

3. SCOPE OF WORK

The Review shall include a gender perspective i.e. analysis made,statistics and results presented should, when possible, considerimpact and consequences for men and women and their respectiveroles.

The consultant shall concentrate, but not necessarily be limited to,

the following issues;

A. The UNICEF/PROANDES water and sanitation component:

- Present and assess briefly the overall progress of the water andsanitation component since its initiation in relation to agreedobjectives and plans including a discussion on relevance of thecomponent (considering the needs of the target group and otherprogrammes in the sector);

- Assess the sanitation part of the programme including level oftechnology, costs and the possibilities to cover the costs locally,acceptance of technology and methods, cultural acceptance, localproduction, coordination with improvements of water supplies andhygiene training, training and capacity building:

- Assess the hygiene education and health training and itsintegration into other activities, the methods to involve the users, theproduction and distribution of materials (in local languages);

- Make a summary of the investment costs and costs for operationand maintenance (when applicable) of different parts of thecomponent i.e. various types of improved water supplies, latrines,hygiene education/health training including a differentiation ofcommunity, national government and foreign contributions. Thesummary should be based on available reports and studies and unitcosts shall be presented when possible.

- Assess the systems for costing and cost recovery including adescription of the financial system(s) to organise and administer thecollection and handling of funds to cover future costs forreplacement and operation and maintenance including a briefdiscussion on the institutional and financial sustainability of theproject. Comment on the policy for pricing of water.

- Present and comment on the administrative costs including theUNICEF recovery costs and other overhead costs.

C:\USERWP\OVR1GT\TOR-BOL.WPD

Sida 4

- Briefly compare the methods, results, costs and experiences of thePROANDES water and sanitation component with those of thePROSABAR supported by the World I3ank.

- Give recommendations to Sida on tl-e need and appropriateness ofcontinued Swedish support to the water and sanitation componentwithin UNICEF/PROANDES beyond the present agreement period.

B. The UNDPIWB Regional Andean Network for Water andSanitation:

- Present and assess briefly the overall progress of the Networksince its initiation in relation to agreed objectives and plans includinga discussion on relevance of the project (considering the needs ofthe target group and the overall policies in the sector).

- Discuss UNDPIWB’s work with and influence on national policies,institutional development and exchange of experiences betweendifferent countries in the region.

- Comment on its interaction with an influence on other projects suchas the PROANDES and PROSABAR.

- Present and comment on the admini~trativecosts of the Network.

- Give recommendations to Sida on the need for continued Swedishfunding of the Network.

C. Procedures for the preparation oF possible future Swedishsupport to the water sector in Bolivia

- Comment on the appropriateness of methods and conceptsproposed by the World Bank to improve the water supply andsanitation in pen-urban areas in Bolivia as outlined in a projectdocument envisaged to be presented n July 1996.

- Comment on the appropriateness of Dhannelling Swedish funds tothe project and, if appropriate, propose further steps in thepreparation of such a support (possible appraisal etc).

4. Consultant

The Review shall be carried out by a tBam of two internationalconsultants and one local consultant (hereinafter called theConsultant) covering relevant technical, economical andorganizational aspects. The Consultant shall be able to work in theSpanish language and have knowledge of the region and itscharacteristics.

c \USERVVP\OVRiGT\TOR-BOL.WPD

Sida s

One of the members of the consultant team shall be appointed as ateam leader and will be responsible for the elaboration of a jointreport from the Review.

It is envisaged that one or two professional staff at relevantministries or authorities will participate in the Review and providetechnical and other background information to the Team. Theprofessionals will not participate in the writing of reports.

5. Reporting

The report is to be the product and responsibility of the twointernational consultants, each one contributing certain sections asagreed within the team and in addition, offering professional viewson all sections of the report.

The team leader shall be responsible for the planning and co-ordination of the mission, the distribution of work and responsibilitiesamong the team members and the finalization and presentation ofthe report to Sida.

The Consultants shall present draft written conclusions to relevantline ministries, UNICEF and the Sida representative beforedeparture from Bolivia. It is envisaged that such a presentation willbe made in one joint meeting in La Paz.

The Consultant shall present a Draft Report to Sida in 5 copies notlate than two weeks after finalizing the field-visits.

The Consultant shall present a Final Report to Sida in 5 copies notlater than two weeks after receiving SIDA’s comments on the DraftReport.

All reports shall be written in the English language. The ExecutiveSummary of the report shall also be presented in the Spanishlanguage. The Consultant shall, on request from Sida, be preparedto translate the entire report into Spanish.

6. Time schedule

The Review will be carried out in September 1996. It is envisagedthat field visits are undertaken during one week and visits to relevantministries and other organisation in La Paz are undertaken duringone week. If needed, one of the international consultants mayspend a third week in Bolivia for additional interviews and field visits.

C~\USERWP\OVRIGT\TOR-BQL.WpD

Final report

ANNEX 2. LIST OF PERSONS INTERVIEWED

In SwedenGardellKiistina, DES0/Halso,Sida

JohanssonBengt,Natur/Afrika, SidaOlstedtAnn-Charlotte,DESO/Und,SidaSjOmanLena

In BoliviaAllagaD.M. PedroA., DivisiOn Tecnica,ANESAPA

AlvésteguiAlfonso J., AsesorTécnicoNacional,PROSABARAramburoA. Joaquin,JefeRegionaldeOperaciones,FIS

AristizabalGladys, Consultor,ProgramaPNtJD - BancoMundialde Aguay SanearruentoBartehnkAlexander,PrimerSecretano,Embajadade los PafsesBajosBracamonteJuan,ConsultorUNICEF, FederaciOndeCampesinos

CaceresHumberto,Consultor, ProgramaPNUD - BancoMundial deAguay SaneamientoCamachoAlvaro, Consultor,ProgramaPNUD - BancoMundialde Agua y Saneanuento

CamarlrnghiLaura, Oficial deCapacitaciOn,UNICEF

CanclarillasDante,ex extensionistaProyectoYacupaj, IPTK

ChumaceroVirginia, AsesoraSocial Departamental,PROSABAR

Copaja Angel, Director, SEMDE

CornaleGuido, Oficial deProgramas,UNICEFDeRuiz Lourdes,DirectoraEjecutiva,PROSABARFloresDilma, Oficial, EmbajadadeSuéciaGomezRosarioL, DivisiOn DesarrolloRecursosHumanos,ANESAPAGustafssonCaihanna,CoordinadorSvalornaBoliviaJaraJorge.Representante,UNICEF

LoezMagno Norman,DirectorAreaChayanta,IPTK

MathysMain, RegionalManager,ProgramaPNUD - BancoMundial deAguay Saneamiento

MejiaGastOn,DirectorEjecutivo,PROAMurillo Mirtha, ResponsabledeSiscemadeInformaciOn

NavarroA. Erico,DirectorNacionaldeSaneamientoB~sico,MrnisteriodeDesarrolloHumano,SecretanaNacionalde ParticipaciOnPopular,SubsecretariadeDesarrollo1-lumano

PachecoWinston, GerenteAdministrativo y Fmanciero,PROA

ParedesBenjamin,DirectorEjecutivo,CENATEC

ParedesTeodicio,Directorde Obras,VisiOn Mundial

PasosCésar,CoordinadorPROANDES,UNICEF

R2ü1BascOn,JefedeArea— Vivienda, PROARobbertsJan,PrimerSecretano,SecciOndeCooperaciOnparael Desarrollo,Embajadade SuéciaRuizaraOswaldo,ex extensionistaProyectoYacupaj,IPTK

SanchezB. Oswaldo,ConsultorNacionalen IngienieriaSanitaria,FondoNacionalde DesarrolloRegionalSoto Bety, AsesoraSocial

TonicoEnrique,JefedeDepartamentodeSaneamientoBásicoRural,MjnjsterjodeDesarrolloHumano,SecretanaNacionaldeParticipaciOnPopular,SubsecretariadeDesarrolloHumanoUnbeJosé,JefedeProyectoConsultorias,PROAVera Rafael,Consultor, Programa PNUD - BancoMundial de Aguay Saneamiento

WalkerRichardoContreras,DirectordeAgua, FederaciOndeCampesinosWolf Alfredo, AsistentedeSaneamientoBásico,CARE

YamashitaKayo,ExpertoAsesorparaDINASBA, JICA

Final rep9rt

ZuletaJosé,Olicial de Aguay SaneamientoProandes,UNICEF

Visted villages

Yacupajprojectsin Potosi* Chacapampa,Chayantaprovince* Kancha,Chayantaprovince* Patahuayllas,Chayantaprovince

* Tomaicuri,Chayantaprovince* BalseraPampa,Chayantaprovince

* LucasKahua,Chayancaprovince

Unicefproject in PotosfandCochabambaKamami,Bustillos province

Jiskanki,Bustillosprovince

Phalawkami,Bustillos provincePongoma,Bustillos province

Cutimarca,BustillosprovinceNuevaPalca,Bustillo provinceCayo Cayo,IbafiezprovinceCaywani,Ibafiezprovince,Jistarata,Bustillos provinceCochini, IbafiezprovinceLayupampa, IbafiezprovinceQuequesana,IbafiezprovinceTolapampa,Bohvarprovince,departmentof CochabamI~a

Malchochapi, IbafiezprovinceVila Vila, Ibafiezprovince

Chirocasa,CharcasprovinceLiallawani, Bilbao province

Chacatani,Bilbao province

Final report

ANNEX 3. LIST OF WRITTEN SOURCES

Aguilar 0, BlancoG.,CáceresH., ProyectodeSaneamientoBasicoRuralen Comunidades DispersasdePotosi Yacupaj — Informe de EvaluaciOn Final, PNUD I Banco Mundial Programade Agua y

Saneamiento,1994.

AlvesteguiA., OpcionesTecnicas— NivelesdeServcio,PROSABAR,1995.

An Evaluationof the UNDP-World BankWater and SanitationProgram— Reportofan Independent

Team,TheWorld Bank, 1996.

Cortes R., MedinaM, RecacocheaR., Molina RiveroR., Informede EvaluaciOndel PROANDES—

Bolivia, 1992.

Differenttraining manualsproducedby SEMDEandUNICEF.

Draft Country WorkplansAndeanRegionFY96, UNDP - World BankWater and SanitationProgram,

1996

Letterof Agreementbetweenthe SwedishInternationalDevelopmentAuthonty and the InternationalBank for ReconstructionandDevelopmentand the InternationalDevelopmentAssociationconcerning

SwedishSupport of theUNDP - World BankWaterandSanitationProgram.

Mejoramientode las Condicionesde SaneamientoBásicoen ZonasUrbano — Marginales —

PresentaciOndeLa Propuesta,ProgramaPNIJD / BancoMundial deAguay Saneamiento,1996.

Planesde Accion Anuaies 1995 y 1996— Proyecto04 “Agua y Saneamiento’.

‘Proyecto Yacupaj” Bol/90/004 — Informe Final, ProgramaPNUD / Banco Mundial de Agua y

Saneamiento,1994.

RebulicadeBolivia Mznisterio deDesarrolloHumano,Subsecretanade DesarrolloUrbano,Direccióri

Nacional de Sanearniento Básicocon la cooperaciOndel ProgramaPNUD / BancoMundial deAgua y

Saneamientoy la Agencia Generalde CooperaciOnparael Desarrollo del Gobiemode Belgica,Diagnosticoe IdentificaciOnde Pnncipiosy Estrategicasde SaneamientoBásicoparaZonasUrbano-MarginalesdeBolivia — DocumentodeProyecto,1996.

RecacocheaR., InformedeEvaluaciOndelos ProgramasdeAguaPotabledePROANDES,1993.

Republicof Bolivia, National Directorateof Waterand SanitationDINASBA, Pen-UrbanWaterSupplyand Sanitationin Bolivia — a New Strategy for Poor Urban Dwellers — Project Proposal Draft 1,ProgramaPNUD /BancoMundialdeAgua y Saneamiento,1996.

Resumende Politicasy Estrategiasde ImplementaciOndelProyectoYacupaj,ProgramaPNUD I BancoMundial de Aguay Saneamiento.

SaraJ, Gross A., Van den Berg C., Rural Water Supply & Sanitation in Bolivia — From Pilot Projectto National Program, UNDP - World BankWaterandSanitationProgram,1996.

Final rep7rt

Soto T. B., Cortés G.G., CaviedesS. E., Yacupaj Sustentabilidadde los Servicios de Agua y

Saneamiento,ProgramaPNUD /Banco Mundial de Aguay Saneamiento,1995.

StaffAppraisalReport— Bolivia RuralWaterandSaniation Project,TheWorld Bank,1995.

UNDP-WorldBankWaterandSanitationProgram,Annual Report July 1994 — June1995,IBRD I TheWorld Bank, 1996.

UNICEFandGovernmentof Bolivia, MasterPlan of Operations— CountryProgrammeof Cooperation

1993 - 1997.

UNICEFBolivia, The Cost of Development Report 2-—Water Systemsin Bolivia, 1995.

UNICEF, ProgrammeDocumentPROANDES,1995.

ANNEX 4

Non-conventional sanitation solutions of potential interest to UNICEF’sPROANDES programme

Pit toilet with urineseparation

UNICEF’s watsanprogrammein El Salvadorhasfound thatconventionalpit toilets functionmuchbetterwith urineseparation.Whenonly faecesplus thematerialusedfor analcleaningaredroppedinto thepit thecontentsrapidlydry,theydo not smellandfly-breedingis no problem.

Thefigureaboveshowsthis latrinewith aseat,asbuilt in El Salvador.Forusein Bolivian ruralareasit shouldbeequippedwith squattingslab,seefigurebelow.

Urine canbedirectedinto a shallowsoakpit,but a bettersolutionwouldbe to collectit in acontainerand,afterdilution, useit asa fertilizer in gardenorgreenhouse.

Indoor, dryearth-toilet

Ladakhis adry highlandin thewesternHimalayas.Naturalconditionsaresimilar to thoseoftheAltiplano. In Ladakhmosthouseshaveindoortoiletswhich areon theupperfloors. On thefloor of thetoilet room thereis a thick layerof soil from thegarden.In the floor a drop-holeleadsto asmallground-floorroom. This roomcanonly bereachedfrom theoutside,seefigureA4-3.

Fig A4-l: Pit toilet with urineseparation,El Salvador

Fig A4-2: Squatting slabwith urine separation

Bolannex 10.12.96 Annex 4, p 1

Fig A4-3: Sectionthrougha Ladakhihousewith indoor, upper-floor earthtoilet

Peopleexcreteon the soil which is on the floor. ‘[‘hen theypushsoil andexcretatogetherdownthe drophole.Theymayaddashesfrom thekitchen.

The entranceof the ground-floor room is blocked with stones. The dehydratedanddepathogenizedfaecesareremovedin springand autumnand spreadon thefields.

TheLASF toilet

TheLASF, LetrinaAboneraSecaFamiliar, isa CentralAmericanadaptationof thedouble-vaultVietnamesetoilet. This typeis suitablewhenhouseholdswant to useurineanddepathogenizedfaecesasfertilizer andsoil conditioner.Fig A4-4 showstheVietnameseoriginal.

Fig A4-4: Toilet for fertilizer production,Vietnam

The toilet vaults (chambers) arebuilt entirelyabovegroundfrom stone,bricksor adobe.Theyarecoveredwith a squattingslab madeofconcrete.Urine flows into a container.After dilutionwith 5 partsofwatertheurineis usedin thegardenas a fertilizer.

Only onedrop hole is used.Theotheroneis coveredwith a stone.Eachtime theydefecate,peoplesprinkleashesora soil/limemixtureon thefaeces~Whenthefirst vault is nearlyfull it istoppedup with earthandthe dropholeclosed.The otherdrop holeis now used.When thesecondvault is nearly full, the first one is openedand emptied.The contentsare usedasfertilizer.

j~a1eof exCretamd soil

Botannex 10.12.96 Annex 4, p 2

A solarheatedtoilet

UNICEF in Guatemalaand El Salvadorhastogether with the Sida-fundedSANRESprogrammebeentestingsomeversionsof asolar-heateddesiccatingtoiletwith urineseparation.The main purposeof the solar heater(a blackpaintedaluminiumlid facing the sun) is toincreasetheevaporationofexcessliquid from thedesiccationchamber,seefigureA4-5.

The solar heater is probably not necessaryin areaswheretheair humidity is as low ason theAltiplano. Thishasto betestedthough.

Anotherversionof the solar-heatedtoilet is usedin Ecuador.Thereit is calledthe “InodoroAbonero”andhastwo chambersandaventpipe.This typeof toilet hasbeenpromotedby theFundacionEcuatorianadelHabitat(FUNHABIT), seefig A4-6.

Fig A4-5: Solar-heated,desiccatingsmglevault toilet, El Salvador

Fig A4-6: Solar-heated,desiccatingdoublevaulttoilet, Ecuador

Bolannex 10.12.96 Annex 4, p 3

Indoor, dryearth-toiletsin Sweden

Non-conventionalsanitationis not only for poorcommunities.In Swedena numberof highstandarddesiccatingandcompostingtoiletshavebeenon themarketfor manyyears.Fig A4-7shows one examplebasedon urine separationand desiccation,The urine is storedin anundergroundtankandcollectedperiodicallyby nearbyfarmers.Thesystemis oftencombinedwith on-sitetreatmentofgrey-water(waterfrom kitchen,bathandlaudry).

S

Fig A4-7: Desiccatingtoilet with urine separation,Sweden

1

Bolannex 10 12.96 Annex 4, p4

Final report

ANNEX 5. DRAFT OUTLINE OF PROPOSED WORKSHOP FOR THEDISSEMINATION OF A NEW SANITATION TECHNOLOGY

Purpose

To disseminatethefindingsof aproposedstudyof sanitationalternativesfor Altiplanoconditions.

Participants

Governmentand ESA officials involved in rural and urban sanitation,NGO staff,extensionworkers.Max 20 participantsperworkshop.

Duration

Fourdays,includingpracticalwork.

Curriculum

Morningsaredevotedto lecturesanddiscussionson the theoryandpracticeofecologicalsanitationwith specialreferenceto theconditionson theAltiplano. Humanexcretaasaproblem. Human excreta as a resource.Health risks. Pathogendestruction.Thepropertiesof urine and faeces.Problemsand risks. Fertilizer potential.Casestudies.Socialmarketing.Follow-up.

Afternoonsand eveningsare devotedto practicalwork. Constructionof full-scaleprototypes.

Facilitiesrequired

Coursecentrewith lectureroom andaccommodation.Storageroomfor building materialsandtools. Back-yardfor construction.

ANNEX 6. SUMMARY OF RECOMMENDATIONS

Below thegeneralrecommendationsaresumrrarised.Thepurposeof thesummaryis tofacilitate Sida’s dialogue with UNICEF arLd UNDP-WB. The detailed technicalrecommendationsarenot includedin this summarybutreferencesaregivenwhenthis isapplicable.

Part 1: Recommendations UNICEF

SECTION IN REPORT RECOMMENDATION ACTION

PROPOSED TO BETAKEN_BY

PROPOSEDTIME FRAME

4.1. ContinuedSwedishsupport 1. Sidashouldconsiderfurtherfinancingprovidedthat UNICEF:

a) redirectsthe programme,

b) continuesto opt for financingfrom nationalsources,c) continuesits dialoguewith DINASBA2. Sidashouldmonitor developmentof WATSAN andcontinuepolicy dialogue

For (1) a) to (1) c)UNICEF,

For(2) Sida

Continuos

activities

4.2. Hygienepromotion 1. Changetheprojectsfocustowardsintegratedproject2. Developa strategyfor hygienepromotion(technicalrecommendationsincluded

UNICEF As soon aspossible

4.3. Sanitation 1. Reviseemphasisandstrategies2. Developtoilet prototypes

3. Revisethe designofsolar heatedshowers“sanitationunits”(technicalrecommendationsincluded)

For(1) & (3) UNICEFFor (2) UNICEF in coop.with DINASBA

As soon as

possible

4.4.Equality betweenmenandwomen 1. Developa more detailedstrategy(technicalrecommendationson strategycontentincluded)2. TrainNGOson basicgendertheoryand thenew strategy3. Assessthe strategyafteroneyearof implementation

UNICEF (I and 2) during1997. (3) during1998

4.5. Systemsfor cost calculationandcostrecovery

I. Develop simplecostcalculationsystem(technicalrecommendationsincluded)2. Analysetheadvantagesanddisadvantagesof thecostrecovery

policy usedby PROSABAR

UNICEF (1) during 1997(2) w h e nPROSABAR ismore functional

4.6. Administration, operation andmaintenanceof installedsystems

1. Undertakea study of A, 0 & M in 10 villages or so.Basedonstudy results redesign tue policy and methodologies used fortraining(technicalrecommendationsare included)2. Train the communitieswhich have already got [lie water

systemsbut whichhavenot receivedthe full training in A,O&M

UNICEF (I) during 1997(2) continuosactivity to becompletedwithin2 to 3 years

ft

Part 2: Recommendations RWSG-AN

SECTION IN REPORT RECOMMENDATION ACTIONPROPOSED TO BE

TAKEN_BY

PROPOSEDTIME FRAME

5.4. Main conclusions andrecommendations

I. Sida needs to follow up the results of the UNDP-WPprogrammesmoreclosely2. A decisionto finance a UNDP-WB should be based on aprojectdocumentwhich descnbesobjectivesetc..3. Sidashouldconsiderfuture fundingpossible

Sida Continuos

activities

5.4. Main conclusions andrecommendations,cont.

1. RWSG-AN should inform otheractors in the sectorabout itsexistence2. RWSG-AJ~4shouldutiliseaconsensusbuildingstrategy

RWSG-AN Continuosactivities

6.2. Analysis of the projectproposalandtechnicalrecommendations

1. Both DINASBA and RWSG-AN should participate in the

implementation2. Consensus building strntegy should he used in involve thp

actorsfrom thebeginningin theproject3. A specialcommunicationstrategyshouldbedeveloped4. The financial and environmental implications of dry versuswet sanitationshouldbeanalysed

5. Health and hygieneproblemsshould be included in the

diagnosticsurvey

6. The percentageof cost recovery should be definedin the

diagnosticsurveynot beforethestudy7. Pilot projects should include different national conditions

(I) DINASBA andRWSG-AN

(7) to (7) the projectimplementators

(1) to (3) as soonas possible andalsocontinuos

(4) to (7) duringLhe projectimplementation

6.3. Recommendations for Swedish

financing1. Sida shouldconsiderfinancing,but other donors should also

participate2. A new detailedproject proposals should be developed

3. Assessmentof the proposal

4. Earmarkfundsfrom Civil ServiceReformfor DINASBA5. Monitor the project results annually and a mid-termassessment

(1) and (3 to 5) Sida

(2) RWSG-AN

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